Don T Ask Dont Tell Essay

Support Plan for Implementation
Report of the Comprehensive Review of the Issues Associated with a Repeal of “Don’t Ask, Don’t Tell”

November 30, 2010

Support Plan for Implementation Report of the Comprehensive Review of the Issues Associated with a Repeal of “Don’t Ask, Don’t Tell”
Co-Chairs
The Honor able Jeh Ch a rle s Joh n son G ener a l C a r t er F. H a m, U. S . A r my

Senior Enlisted Advisor
Fle et M a ster Ch ief S c ot t A . B en n i n g, U. S . Nav y

Team Leaderhip
The Honor able D a n iel B . Gi n sb er g A s si s t a nt S e c r et a r y of t he A i r For c e for M a np owe r & R e s e r ve A f f a i r s The Honor able Pau l L . O o stbu r g S a n z G ener a l C ou n s el of t he D ep a r t m e nt of t he Nav
y L ieuten a nt G ener a l R ich a r d C. Z i l mer D eput y C om m a nd a nt for M a np ower & Re ser ve A f f a i r s, U. S . M a r i ne C or p s L ie ut e n a nt G ener a l R ich a r d Y. New ton I I I D eput y Ch ief of St a f f for M a np ower & Per s on nel, U. S . A i r For c e Vic e Ad m i r a l M a rk E . Fer g u s on I I I Ch ief of Nav a l Per s on nel & D eput y Ch ief of Nav a l O p er at ion s (M a np ower, Per s on nel, Tr a i n i n g & E duc at ion) L ie ut e n a nt G ener a l Thom a s P. B o s t ick D eput y Ch ief of St a f f G -1 (M a np ower & Per s on nel) , U. S . A r my M r. K a rl F. S ch neider P r i nc ip a l D ep ut y A s si s t a nt S e c r et a r y of t he A r my (M a np ower & R e s e r ve A f f a i r s) M r. Jo s e ph M . McD a d e, Jr. A s si st a nt D eput y Ch ief of St a f f G -1 (M a np ower & Per s on nel) , U. S . A r my M ajor G ener a l St even J. L epp er D eput y Jud ge Advo c ate G ener a l of t he A i r For c e

Chief of Staff
M aj or G ener a l G r e gor y A . Bi s c one, U. S . A i r For c e

Support Plan for Implementation
Report of the Comprehensive Review of the Issues Associated with a Repeal of “Don’t Ask, Don’t Tell”

November 30, 2010

TABLE OF CONTENTS
I. BACKGROUND .............................................................................................1 Overview............................................................................................... 1 Key.Implementation.Message.............................................................. 2 Stages.of.Implementation.................................................................... 2 Legislative.and.Legal.Context.............................................................. 3 Additional.Materials. ........................................................................... 4 . LITERATURE REVIEW .................................................................................5 Service.Academy.White.Papers........................................................... 6 Other.Academic.Literature.Related.to.Don’t.Ask,.Don’t.Tell.............. 10 Conclusions. ......................................................................................... 11 . Note.on.the.Service.Academy.White.Papers....................................... 12 PRE-REPEAL STAGE ..................................................................................13 Key.Implementation.Message.............................................................. 13 Pre-Repeal.Overview............................................................................ 13 Pre-Repeal.Analysis............................................................................. 15 . Summary.............................................................................................. 28 IMPLEMENTATION STAGE ........................................................................29 Implementation.Overview.................................................................... 29 Implementation.Analysis..................................................................... 30 . SUSTAINMENT STAGE ...............................................................................39 Sustainment.Overview......................................................................... 39 Sustainment.Analysis. ......................................................................... 39 . Summary.............................................................................................. 43 RECOMMENDED TALKING POINTS ...............................45 RECOMMENDED EDUCATION AND TRAINING ..........47 Education.and.Training.Framework............................. 47 Education.and.Training.Principles................................ 48 Education.and.Training.Guidance................................ 48 Learning.Objectives........................................................ 49 RECOMMENDED LEADERSHIP GUIDE .......................61 Key.Implementation.Message........................................ 61 Summary.of.the.Working.Group’s.Report. ................... 62 . Command.and.Supervisory.Responsibilities. and.Guidance.................................................................. 65

II.

III.

IV.

V.

APPENDIX A. APPENDIX B. . . . . APPENDIX C. . . . .

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APPENDIX D. . . APPENDIX E.

FREQUENTLY ASKED QUESTIONS AND VIGNETTES ..................................................................69 Frequently.Asked.Questions.(FAQs). ............................. 70 . Vignettes. ........................................................................ 75 . RECOMMENDED FOLLOW-ON STRATEGIES .............85

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I

BACKGROUND
Overview

On.March.2,.2010,.the.Secretary.of.Defense.directed.the.Honorable.Jeh.Charles. Johnson,.General.Counsel.of.the.Department.of.Defense,.and.General.Carter.F..Ham,. Commander,. U.S.. Army. Europe,. to. “stand. up. an. intra-Department,. inter-Service. working.group.to.conduct.a.comprehensive.review.of.the.issues.associated.with.a.repeal. of. the. [Don’t. Ask,. Don’t. Tell]. law.”. . The. Secretary’s. Terms. of. Reference. required. two. deliverables:..1).a.Report.containing.the.Co-Chairs’.assessment.and.recommendations;. and.2).“a.plan.of.action.to.support.the.implementation.of.a.repeal.of.the.law.”..This.is. that.plan... The.Support.Plan.for.Implementation.was.written.in.close.collaboration.with.the. Office.of.the.Under.Secretary.of.Defense.for.Personnel.and.Readiness.(OUSD(P&R)).and. anticipates.key.elements.of.a.successful.implementation...It.is.based.on.the.assessment. and.recommendations.contained.in.the.Co-Chairs’.Report...Because.issues.associated. with.repeal.of.10.U.S.C..§.654.(commonly.known.as.the.“Don’t.Ask,.Don’t.Tell”.law).are. subject.to.a.shifting.legislative.and.legal.landscape,.in.order.to.implement.any.change. in.law.or.policy.successfully.the.Department.of.Defense.and.the.Services.may.need.to. deviate.from.some.recommendations.found.in.this.Support.Plan.. Until.such.time.as.Congress.may.act.to.repeal.Don’t.Ask,.Don’t.Tell,.the.Support. Plan.and.subsequent.related.work.by.OUSD(P&R).and.the.Services.serve.as.contingency. plans. that. will. assist. the. Department. of. Defense. in. preparing. for. a. repeal,. should. it. indeed.occur...This.plan.is.designed.to.support.each.of.the.Service.Training.Commands. in.developing.training.materials.in.the.traditions.and.requirements.of.their.respective. Service...This.plan.does.not.mandate.any.activity,.nor.does.it.contain.actual.training. documents. or. specific. lesson. plans;. the. body. of. the. plan. outlines. the. key. policies. affected. if. repeal. occurs,. while. the. appendices. provide. sample. tools. and. information. that.Services.may.find.useful.in.designing.their.training.and.communication.materials.. . Planning.now.will.allow.the.Department.of.Defense.to.better.anticipate.repeal-related. issues. and. costs. and. will. help. to. ensure. that. any. post-repeal. transition. occurs. with. maximum.efficiency.and.minimum.disruption.to.a.force.engaged.in.combat.operations. and.other.demanding.military.activities.around.the.globe...The.Support.Plan.provides. a.basis.upon.which.OUSD(P&R).and.the.Services.can.build.executable,.DoD-wide.and. Service-specific.plans.in.the.event.of.repeal. The. Support. Plan. links. the. Co-Chairs’. assessment. and. recommendations. to. OUSD(P&R).planning.processes,.thereby.enabling.a.smooth.transition.from.the.Working. Group.to.OUSD(P&R).now.that.the.Working.Group.has.completed.its.effort...The.Support.

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Plan.relies.heavily.on.the.research.conducted.by.the.various.teams.within.the.Working. Group,.survey.data,.engagements.with.the.force,.and.the.white.papers.produced.by.the. Service.academies...The.Support.Plan.also.builds.on.best.practices.gleaned.from.other. relevant. military. and. academic. publications,. the. updated. RAND. study,. and. various. Working.Group.interactions.with.and.information.provided.by.academic.and.military. groups.and.other.interested.organizations....

Key Implementation Message
Based. on. engagements. with. the. force. and. the. assessment. of. the. impact. of. repeal,.the.Working.Group.distills.the.key.message.for.risk.mitigation.and.successful. implementation.to.Leadership-Professionalism-Respect...
Leadership..The.clear.message.from.the.Working.Group’s.assessment.is.“leadership. matters. most.”. . Leaders. at. all. levels. of. the. chain. of. command. set. the. example. for. members. in. the. unit. and. must. be. fully. committed. to. DoD. policy. to. sustain. unit. effectiveness,.readiness,.and.cohesion... Professionalism.. Leaders. must. emphasize. Service. members’. fundamental. professional.obligations.and.the.oath.to.support.and.defend.the.Constitution.that.is. at.the.core.of.their.military.service...In.the.profession.of.arms,.adherence.to.military. policy. and. standards. of. conduct. is. essential. to. unit. effectiveness,. readiness,. and. cohesion. Respect. Unit.strength.depends.on.the.strength.of.each.member...We.achieve.that. strength.by.treating.each.member.with.respect...

A.clear.focus.on.Leadership-Professionalism-Respect.will.enable.any.change.in. policy.to.be.executed.with.minimal.disruption.to.the.force.

Stages of Implementation
The.Support.Plan.addresses.both.short-term.preparation.for.and.execution.of.a.
repeal.of.10.U.S.C..§.654,.as.well.as.long-term.sustainment...The.Support.Plan.breaks.the. implementation.process.into.three.stages,.each.covered.in.a.separate.section:..“pre-repeal”. (section.III),.“implementation”.(section.IV),.and.“sustainment”.(section.V). The. pre-repeal. stage. would. begin. at. the. direction. of. the. Secretary. of. Defense,. prior. to. the. enactment. of. any. legislation. that. would. bring. about. repeal. of. the. law.. . During.this.stage,.the.Department.of.Defense.and.the.Services.would.continue.to.review. existing.policies.and.issuances.affected.by.repeal,.and.prepare.new.or.revised.issuances. based. on. the. recommendations. in. the. Working. Group’s. report,. should. the. Secretary. approve.those.recommendations...The.Department.of.Defense.and.the.Services.would. also.develop.education.and.training.materials.and.communications.plans.that.would.be.
used.in.the.implementation.stage...Because.the.pre-repeal.stage.assumes.that.no.repeal.

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legislation.has.yet.been.passed.by.Congress,.it.would.not.be.appropriate.to.commence. education.and.training.programs.for.the.force.during.this.stage. The.implementation.stage.would.begin.upon.the.enactment.of.legislation.bringing. about.repeal.of.the.law,.should.such.legislation.be.enacted...This.stage.would.last.until. some.point.after.the.effective.date.of.repeal,.once.the.roll-out.of.new.policies.has.been. completed...During.the.implementation.stage,.prior.to.the.effective.date.of.repeal,.the. Department. of. Defense. and. the. Services. would. finalize. the. policy. revisions. started. during. the. pre-repeal. stage.. . Education. and. training. programs. necessary. to. prepare. the.force.for.repeal.and.to.communicate.the.upcoming.policy.changes.would.then.be. executed...Upon.the.effective.date.of.repeal,.the.Department.of.Defense.and.the.Services. would.put.any.new.or.revised.policies.into.effect.. Finally,.the.sustainment.stage.would.begin.at.some.point.after.the.new.policies. have.been.put.into.effect,.and.would.be.ongoing...The.sustainment.stage.would.involve. follow-on.review.and.ongoing.monitoring.of.implementation.of.repeal,.in.order.to.make. adjustments.to.implementation.based.on.the.experiences.of.the.Department.of.Defense. and.the.Services.to.that.point... While.the.Support.Plan.separates.these.stages.into.distinct.sections.for.ease.of. discussion,. in. execution. the. precise. boundaries. between. them. may. not. so. easily. be. discerned...

Legislative and Legal Context
The.Support.Plan.for.Implementation.is.written.at.a.time.when.the.legislative.and. legal.landscape.regarding.Don’t.Ask,.Don’t.Tell.is.in.flux...As.of.this.writing,.legislation. that.would.allow.for.repeal.of.10.U.S.C..§.654.is.under.consideration.by.the.111th.Congress,. but.has.not.been.enacted.into.law....The.Don’t.Ask,.Don’t.Tell.law.and.policy.are.also.the. subject.of.ongoing.constitutional.challenge.in.Federal.court. The.Support.Plan.does.not.make.assumptions.about.the.content.or.timing.of.repeal. legislation,.should.such.legislation.be.enacted...Depending.on.the.content.and.timing.of. such. legislation,. the. specific. actions. taken. during. the. pre-repeal. and. implementation. stages.may.need.to.be.adjusted,.and.the.boundaries.between.the.stages.may.overlap.1... The.Support.Plan.also.does.not.assume.any.outcome.of.ongoing.litigation,.or.changes. to.other.laws.affecting.the.implementation.of.repeal,.such.as.the.Defense.of.Marriage.Act.2.
1. .For.instance,.under.the.legislation.currently.contained.in.the.House.of.Representatives.version.(H.R..5136). and.Senate.Armed.Services.Committee.version.(S..3454).of.the.National.Defense.Authorization.Act.for.2011,. repeal.would.only.take.effect.60.days.after.the.delivery.of.a.certification.signed.by.the.President,.Secretary.of. Defense,.and.Chairman.of.the.Joint.Chiefs.of.Staff....If.such.legislation.were.to.pass.in.the.near.future,.much.of. the.development.of.policies.and.of.education.and.training.materials.described.in.the.“pre-repeal”.stage.would. likely.occur.after.the.passage.of.the.legislation;.these.activities.would.then.blend.into.the.finalization.of.policy. changes.and.the.execution.of.education.and.training.described.in.the.“implementation”.stage,.both.of.which. would.likely.occur.prior.to.certification. .1.U.S.C..§.7.

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In.general,.this.Support.Plan.is.written.with.the.awareness.that.the.Department. of.Defense.and.the.Services.may.need.to.deviate.from.its.recommendations.depending. on. legislative. and. legal. outcomes. that. are. unknown. as. of. this. writing.. . Furthermore,. the.Department.of.Defense.and.the.Services.must.be.mindful.that,.prior.to.the.effective. date.of.a.repeal,.10.U.S.C..§.654.and.associated.policies.remain.in.effect,.and,.as.such,. homosexual.conduct.remains.a.basis.for.separation.from.military.service..

Additional Materials
Included.in.this.Support.Plan.is.a.review.of.many.of.the.materials.the.Working. Group.considered.in.developing.this.plan.(in.particular,.the.white.papers.provided.by. the.Service.academies)..This.literature.review.is.provided.in.section.II... The. Support. Plan. also. contains. four. appendices. that. provide. sample. tools. that. may. be. useful. for. the. Department. of. Defense. and. the. Services. in. developing. and. executing.education.and.training.related.to.repeal...Appendix.A.contains.recommended. talking.points...Appendix.B.lays.out.the.Working.Group’s.recommended.education.and. training.framework,.including.learning.objectives.for.specific.policy.areas...Appendix. C. is. a. recommended. leadership. implementation. guide. to. assist. leaders. at. all. levels. in. addressing. practical. issues. associated. with. repeal.. . Appendix. D. provides. a. set. of. frequently. asked. questions. (FAQs). and. answers. regarding. repeal,. as. well. as. training. vignettes.covering.a.number.of.the.Working.Group’s.policy.recommendations... Finally,. Appendix. E. suggests. some. strategies. for. undertaking. follow-on. review. and.ongoing.monitoring.of.implementation.of.repeal.

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II

LITERATURE REVIEW

Before. developing. the. recommendations. in. this. Support. Plan,. the. Working. Group. reviewed. the. most. recent. thinking. from. military. and. academic. professionals,. to.include.external.groups,.and.compared.this.review.to.the.research.and.engagements. the. Working. Group. conducted.. . The. Working. Group. found. consistent. themes. across. all.the.data.considered...The.Working.Group.specifically.invited.the.Service.academies. to. submit. white. papers. and. received. submissions. from. the. United. States. Air. Force. Academy.(USAFA),.the.United.States.Coast.Guard.Academy.(USCGA),.the.United.States. Military.Academy.(USMA),3.and.the.United.States.Naval.Academy.(USNA)...These.papers. represent.contributions.from.37.uniformed.and.civilian.faculty,.commanders,.staff,.and. cadets.at.the.Service.academies..... In.addition.to.these.white.papers,.the.Working.Group.reviewed.several.books.and. articles.published.on.implementation.issues,.along.with.papers.submitted.by.interested. groups...Two.publications.the.Working.Group.reviewed.were.RAND’s.1993.report.and. it’s. updated. 2010. study.. . The. Working. Group. also. reviewed. literature. representing. both.sides.of.the.issue,.including.books.such.as.Parco.and.Levy’s.2010.Attitudes Aren’t Free: Thinking Deeply about Diversity in the U.S. Military Services...Other.major.works. reviewed.by.the.Working.Group.in.the.preparation.of.this.Support.Plan.are.listed.in.the. bibliography...The.Service.academy.white.papers,.the.two.RAND.reports,.and.Attitudes Aren’t Free.would,.in.particular,.serve.as.good.resources.for.planners.and.leaders.who. want. to. understand. issues. associated. with. a. repeal. of. Don’t. Ask,. Don’t. Tell,. should. it. occur. . The. Working. Group’s. research,. literature. review,. engagements. with. the. force,. and. assessment. of. impact. of. repeal. resulted. in. the. key. implementation. message. of. Leadership-Professionalism-Respect.as.described.in.section.I,.and.discussed.further. in. section. IV.. This. concept,. when. combined. with. the. Working. Group’s. approach. to. education.and.training,.constitutes.an.implementation.strategy.that.reflects.many.of.the. Service.academy.recommendations.in.their.white.papers...Those.papers.identified.four. ideas.that.are.similar.to.the.Working.Group’s.key.implementation.message:... 1. Leadership Matters Most...Unified,.strong.leadership.is.the.most.important. factor.in.successful.transition...The.manner.in.which.DoD.military.and.civilian. leadership. executes. transition. will. determine. the. success. of. the. transition. process...To.be.effective,.leaders.must.be.given.clear,.equitable,.and.enforceable. standards.of.conduct.and.the.tools.required.to.enforce.standards.and.maintain. good.order.and.discipline.in.a.sexual.orientation-neutral.way...
3. .The.USMA.Office.of.Economic.and.Manpower.Analysis.(OEMA).also.wrote.a.white.paper,.which.predated.the. first.Service.academy.white.paper.from.USMA.

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2. Minimize Management. .It.is.clear.that.effective.management.is.important.to. any.change.process.but.management.cannot.be.the.driver.of.change...Therefore,. while.the.Department.of.Defense.will.need.effective.and.efficient.management. tools.and.processes,.it.is.important.to.ensure.that.the.processes.developed.to. manage.change.should.not.dominate.the.change.process...Unnecessary.layers. of.new.management.requirements.will.slow.down.the.transition.process.4.. 3. Communicate and Educate...Some.training.on.the.new.rules.and.procedures. will. be. needed. as. part. of. implementation.. . However,. most. training. can. be. incorporated. within. already. existing. training. programs,. and. extensive. new. or. sensitivity-type. training. will. not. improve. the. implementation. process.. . Communication. and. education. should. focus. on. actions. and. policies. needed. to. maintain. good. order. and. discipline. of. an. effective. fighting. force.. . Many. Service.members.are.uncertain.about.the.prospect.of.serving.with.known.gay. or.lesbian.personnel,.and.have.misunderstandings.about.the.implementation. process.. . Effective. communication. and. education. can. provide. needed. information.for.effective.post-repeal.decision.making. 4. Promote Strength through Professionalism.. . Values. such. as. respect,. freedom,. service,. patriotism,. integrity,. and. honor. are. some. of. the. bonds. all. military. professionals. share.. . While. each. Service. articulates. these. values. slightly. differently,. these. values. share. a. common. heritage. with. the. military. professional’s.oath.to.support.and.defend.the.Constitution.of.the.United.States.. . Military.professionals.are.often.called.upon.to.subjugate.their.personal.beliefs. to.this.sworn.oath.as.they.obey.the.legal.orders.of.those.appointed.over.them.. . Our.strength.as.an.effective.fighting.force.comes.from.our.ability.to.apply.our. professional.values.to.our.conduct.in.training.and.in.combat...Change.must.be. grounded.in.these.important.professional.values.

Service Academy White Papers
The.idea.for.the.Service.academy.white.papers.developed.from.Working.Group.
Co-Chair. General. Carter. Ham’s. vision. of. including. the. thoughts. of. Service. academy. scholars. and. leaders. in. the. Working. Group. process.. . The. concept. solidified. after. an. annual.meeting.of.the.Service.academies.(51st.Annual.Conference.of.Service.Academy. Superintendents. (COSAS)). hosted. at. West. Point. in. the. spring. of. 2010.. . During. the. conference,. senior. Working. Group. leaders,. including. Co-Chair. Jeh. Charles. Johnson,. were.at.West.Point.for.a.scheduled.engagement.with.academy.personnel...During.that. visit,. the. Working. Group. leaders. met. with. the. COSAS. group. to. discuss. the. Working. Group. process,. and. the. academies. began. discussing. their. white. papers.. . The. United. States. Military. Academy. at. West. Point. completed. its. white. paper. on. May. 18,. 2010.. . Working. from. a. draft. of. the. West. Point. paper,. the. United. States. Air. Force. Academy. completed.its.white.paper.on.June.24,.2010...The.United.States.Coast.Guard.Academy. and.the.United.States.Naval.Academy.worked.independently.from.these.two.papers.and. completed. their. papers. in. August. 2010.. . By. working. this. way,. the. Service. academies.
were.able.to.create.a.body.of.work.that.represents.the.joint.expertise.of.all.the.Services.
4. .Kotter,.Leading Change.(1996)

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and.provides.a.comprehensive,.multidisciplinary.review.of.Don’t.Ask,.Don’t.Tell.and.the. process.of.organizational.change... United States Military Academy (USMA) white paper The.USMA.white.paper.“provides.a.series.of.scholarly,.evidence-based.perspectives. on.the.repeal.of.Don’t.Ask,.Don’t.Tell”.from.the.“academic.disciplines.of.history,.public. policy,.comparative.politics,.civil-military.relations,.sociology,.psychology,.organizational. behavior,.management,.and.law.”..As.the.first.of.the.four.Service.Academy.papers,.the. USMA.white.paper.provides.more.context.than.applied.recommendations...This.paper. is. important. as. the. foundational. work. from. the. Service. academies. and. represents. a. thorough.review.of.many.of.the.issues.related.to.repeal...This.paper.also.introduced.the. first.three.of.the.four.themes.that.guided.the.Working.Group’s.study.of.implementation.. . The. ability. of. the. USMA. authors. to. succinctly,. yet. thoroughly,. frame. issues. from. a. multidisciplinary. perspective. was. a. valuable. source. of. information. for. the. Working. Group.. United States Air Force Academy (USAFA) white paper The. . USAFA. . white. paper. team. sought. to. supplement. and. build. on. the. interdisciplinary. review. provided. by. their. West. Point. colleagues.. . The. USAFA. team. sought. to. “go. beyond. the. contextual. and. scholarly. analysis. of. the. issues. related. to. changes. in. Don’t. Ask,. Don’t. Tell. policy. and. provide. actionable. suggestions. to. assist. decision.makers.in.creating.a.culture.of.inclusiveness.”..The.authors.framed.the.problem. in.the.values.of.the.profession.of.arms,.the.oath.of.office,.and.Service.core.values...The. authors. especially. focused. on. the. value. of. respect. for. human. dignity.. . Other. ideas. offered. by. the. USAFA. team. included. suggestions. on. the. use. of. training. scenarios. or. vignettes,.developing.sexual.orientation-neutral.standards.and.training,.the.importance. of.initially.focusing.on.behavior.rather.than.attitudes.or.culture,.developing.a.leadership. information.“tool-kit”,.working.training.into.pre-existing.programs.as.much.as.possible,. and. developing. specialized. training. for. medical. and. legal. professionals.. . The. authors. emphasized.seven.points: 1.. Focus. on. military. readiness,. cohesion,. and. effectiveness. and. not. difficult. moral.debates.on.sexual.orientation. 2..Focus.on.“strength.through.respect”.as.a.unifying.theme.embedded.in.military. values. 3.. Resolve. practical. issues. such. as. housing. and. privacy. quickly. and. with. little. fanfare. 4.. Swift.accountability.for.non-compliance. 5.. Incorporate.training.into.existing.training.as.much.as.practical. 6.. Culture.change.is.a.long-term.process.that.will.require.persistence. 7.. Do.not.allow.a.small.vocal.minority.to.dominate.the.debate.

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United States Naval Academy (USNA) white paper The. USNA. white. paper. summarized. the. USMA. and. USAFA. white. papers. and. provided.five.independently.written.perspective.papers...Three.perspective.papers.were. written.through.the.lenses.of.the.three.primary.mission.areas.at.USNA.of.moral,.mental,. and.physical.development;.a.fourth.was.from.the.Admissions.Office.and.the.fifth.was. from.the.Sexual.Assault.Response.Coordinator.(SARC). The.moral.perspective.paper.proposed.a.“minimalist.approach.to.change”.similar. to. the. West. Point. theme. of. minimizing. management.. . This. perspective. identified. the. most. important. factor. in. successful. repeal. as. “the. steadfast. and. unwavering. support. of.leaders.from.the.most.senior.officers.to.the.most.junior.midshipmen.”..A.seamless. transition.marked.by.ethical.leadership.will.create.“a.sense.of.ownership.in.the.process. and. promote. the. readiness. of. future. leaders.”. . The. mental. perspective. paper. also. provided. recommendations. for. swift. implementation. should. the. law. change.. . Finally,. this.perspective.suggested.that.sexual.orientation-specific.policies.and.standards.not.be. created.and.that.existing.conduct.standards.be.used.to.address.breaches.to.good.order. and.discipline...The.physical.perspective.paper.discussed.issues.related.to.NCAA.athletics. and.provided.insights.that.may.be.useful.to.the.other.Service.academies.post-repeal. In.addition.to.the.perspective.papers.covering.the.three.main.mission.elements.at. USNA,.papers.from.the.Admissions.Office.and.the.Sexual.Assault.Response.Coordinator. round. out. the. USNA. white. paper.. . The. admissions. perspective. discussed. tactical. implementation.practices.related.to.training.admissions.staff.to.ensure.new.accessions. are. aware. of. the. change. in. policy,. creating. communications,. and. collecting. data. on. the. impact. of. repeal.. . The. perspective. paper. from. the. SARC. expressed. the. opinion. that.policies.and.procedures.are.currently.in.place.to.support.victims.of.sexual.assault. irrespective.of.their.sexual.orientation...This.paper.suggested.that.SARC.offices.already. handle.cases.of.same-sex.assault.and.that.repeal.would.remove.some.of.the.barriers.for. victims.of.same-sex.sexual.assault.to.report.assaults. United States Coast Guard Academy (USCGA) white paper The. USCGA’s. . interdisciplinary. analysis. cautioned. . against. linear,. compartmentalized. thinking. and. offered. perspectives. on. how. organizational. change.theory.can.assist.in.the.transition.process...Based.on.their.findings,.the.team. recommended. a. professionalism-based. framework. for. Don’t. Ask,. Don’t. Tell. repeal. using. the. themes. of. leadership. matters,. minimize. management,. maximize. education,. and. promote. professionalism.. . The. USCGA. paper. also. expanded. the. discussion. on. organizational. change. introduced. in. the. USMA. paper. and. further. developed. in. the. USAFA. paper.. . Leader-led. change. throughout. the. organization. was. identified. as. an. important.component.of.successful.organizational.change... An.important.contribution.of.the.USCGA.paper.was.a.thoughtful.discussion.of.the. religious.and.moral.issues.related.to.Don’t.Ask,.Don’t.Tell...The.authors.offered..the.idea.

8

that.religious.plurality.is.a.core.American.value.and.that.constitutional.protections.allow. all.Service.members.to.retain.their.personal.views.regarding.homosexuality.without.fear. of.reprisal...The.United.States.is.characterized.by.both.religious.freedom.and.religious. diversity.and.citizens.do.in.fact.make.different.choices.about.their.personal.spirituality.. . As.such,.there.is.diversity.of.opinion.on.homosexuality.both.across.religions.and.within. denominations....Military.leaders.must.lead.all.members.without.prejudice.regardless.of. their.religious.or.personal.convictions... In. its. recommendations. for. implementation,. the. USCGA. white. paper. authors. suggested.five.coequal.components.of.a.successful.repeal.process: 1.. Consistent.professional.ethos.and.core.values.linkages. 2..Leader-led.implementation.at.all.levels. 3.. Providing.resources.and.tool.sets.to.all.leaders. 4.. Focusing.on.unit.cohesion.and.military.effectiveness.and.readiness. 5.. Assessment.and.leader.accountability. Finally,.the.USCGA.white.paper.suggested.that.preparation,.communication,.and. execution. of. the. repeal. process. “should. be. based. in. the. core. values. and. professional. ethos.of.the.individual.Services.”..Each.Service.should.personalize.its.implementation. plan. in. a. way. that. demonstrates. ownership. of. the. process. in. the. context. of. Service. values.and.respect.for.human.dignity... United States Military Academy Office of Economic and Manpower Analysis (OEMA) white paper In. a. April. 28,. 2010,. white. paper. that. predated. the. four. Service. Academy. white. papers,.the.United.States.Military.Academy.Office.of.Economic.and.Manpower.Analysis. (OEMA).provided.a.baseline.analysis.of.implementation.issues.related.to.the.repeal.of. Don’t.Ask,.Don’t.Tell...Not.surprisingly,.OEMA’s.main.contribution.to.the.discussion.was. a.focus.on.the.process.of.assessing.the.impact.of.repeal.on.the.force...In.order.to.prepare. for.follow-on.review,.the.OEMA.report.recommended.collecting.data.on.several.metrics. to.provide.the.Department.of.Defense.a.pre-repeal,.baseline.measure... The. OEMA. white. paper. offered. a. list. of. recommended. implementation. efforts. based.on.their.analysis,.to.include: 1.. Leadership. must. provide. unqualified. and. committed. support. for. the. policy. change. 2..Any.non-discrimination.policy.should.be.adopted.in.concert.with.regulations. governing.all.behavior,.regardless.of.sexual.orientation.

9

3.. Enforcement.of.the.policy.must.be.uniform. 4.. Training. in. support. of. the. policy. should. address. inappropriate. behaviors. without.reference.to.sexual.orientation. Finally,. the. OEMA. white. paper. cautioned. that. whatever. policy. is. ultimately. adopted.by.the.Department.of.Defense,.the.costs.to.military.readiness.of.being.reactive. versus. proactive. can. be. significant.. . Therefore,. early. preparation. for. any. potential. change. will. assist. in. both. the. efficiency. and. the. effectiveness. of. the. change. process.. . The.report.suggested.that.metrics.collected.pre-repeal.will.greatly.assist.in.a.proactive. understanding. of. repeal. issues.. . This. position. was. echoed. in. the. USNA. white. paper:. “Once.the.Department.of.Defense.gives.the.direction,.we.should.be.ready.to.make.the. change.without.delay.”

Other Academic Literature Related to Don’t Ask, Don’t Tell
In.addition.to.the.Service.academy.white.papers,.the.Working.Group.reviewed.the. 1993.RAND.study,.the.2010.RAND.study,.Parco.and.Levy’s.(2010).Attitudes Aren’t Free,. other.academic.writings.on.Don’t.Ask,.Don’t.Tell;.interacted.with.multiple.groups.such.as. the.Brookings.Institution/Palm.Center.Forum.on.the.Experiences.of.Foreign.Militaries;. received.inputs.from.interested.groups;.and.issued.multiple.data.calls...The.total.body.of. literature.reviewed.overwhelmingly.converged.on.the.four.themes.of.leadership.matters. most,.minimize.management,.communicate.and.educate,.and.promote.strength.through. professionalism... In.addition.to.these.four.themes,.the.literature.also.suggested.the.following.goals. for.each.stage.of.the.implementation.process: 1.. Goals.of.Pre-repeal. a.. Develop.a.strategic.vision.and.a.strategic.communications.plan. b.. Develop. a. plan. for. change. (e.g.,. policy. review,. training/education. materials). c.. Cultivate.unified.leadership.committed.to.change. d.. Stress. organizational. values. related. to. change. (e.g.,. respect,. team,. integrity). e.. Emphasize.preparation. 2..Goals.of.Implementation. a.. Publish.revised.policies,.instructions,.and.regulations. b.. Roll-out.education.and.training.materials. c.. Ensure.senior.leaders.and.commanders.brief.change.to.the.force,.public,. retirees,.and.other.interested.groups.

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d.. Conduct. specialized. training. for. chaplains,. JAGs,. medical,. counselors,. recruiters,.and.personnel.specialists. e.. Ensure. standards. of. conduct. are. equally. applied. without. reference. to. sexual.orientation. f.. Emphasize.behavior.(not.attitudes).and.standards. 3.. Goals.of.Sustainment. a.. Conduct.on-going.assessment.and.adjustment. b.. Continue.to.train.new.personnel. c.. Manage. resistance. with. ongoing. education. and. swift,. appropriate. response.to.violations.of.standards. d.. Provide.support.to.people.most.impacted.by.the.change. e.. Monitor.changes.in.Federal.law.and.adjust.as.needed.. f.. Emphasize.a.culture.of.respect.and.inclusiveness.

Conclusions
As.mentioned.earlier,.the.most.frequently.cited.idea.across.all.the.data.sources. reviewed. for. this. Support. Plan. was. that. successful. transition. depends. on. effective. leadership...Leadership.must.be.unified.at.all.levels.of.the.chain.of.command...Commanders. must.have.the.authority.to.effectively.execute.the.change.and.be.held.accountable.for.its. implementation...Several.other.ideas.also.emerged.consistently.across.most.of.the.data. sources..Ultimately,.these.frequently-cited.ideas.are.all.variants.of.the.Working.Group’s. key.message.for.successful.implementation.of.a.repeal:..Leadership-ProfessionalismRespect...Nonetheless,.as.the.Department.of.Defense.and.the.Services.work.to.frame. the.change.process.from.pre-repeal.preparation.through.sustainment,.there.is.value.in. noting.a.few.more.particularized.concepts: . A.clearly.articulated.vision.of.what.the.Department.of.Defense.expects.as.a.result.of. repeal,.should.it.occur,.is.an.important.part.of.the.change.process...An.essential.part. of.this.vision.is.the.ability.to.apply.unifying.military.values,.especially.respect.for.all. Service.members,.to.the.transition.process... . Many. Service. members’. views. about. Don’t. Ask,. Don’t. Tell. have. a. strong. religious. and. moral. component.. . Religious. pluralism. is. a. core. American. value. and. Service. members.have.a.wide.range.of.religious.views.on.this.issue...Service.members.will. not. be. required. to. change. their. personal. views. and. religious. beliefs.. . They. must,. however,.continue.to.respect.and.co-exist.with.others.who.may.hold.different.views. and.beliefs,.consistent.with.the.core.values.that.already.exist.within.each.Service.

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 . Each.Service.culture.is.unique.and.implementation.must.account.for.and.align.with. Service.core.values. . Unit.cohesion.is.a.leadership.responsibility.and.leadership.is.the.best.way.to.mitigate. potential.cohesion.problems. . Respect.strengthens.the.team.and.is.the.most.important.value.associated.with.the. effective. inclusion. of. any. new. group.. . Respect. does. not. mean. agreement. with. a. person’s.point. of.view... Respect.does.mean.honoring. a.person’s.right. to.hold.their. point.of.view.even.if.it.differs.from.yours... . Education. and. communication. will. be. important. aspects. of. the. implementation. process...Accurate.and.timely.information.is.important...People.want.to.know.“What. does.this.change.mean.to.me?”..Information.that.answers.this.very.basic.question. will.greatly.assist.in.the.implementation.process... . Focus.on.military.readiness,.cohesion,.and.effectiveness.and.keep.sexual.orientation. a.private.matter.as.much.as.possible...Behavior.consistent.with.the.military.mission. should.guide.implementation... . Focus. on. standards. of. behavior. and. not. attitudes.. . Policies. and. standards. should. be. sexual. orientation-neutral,. clearly. worded,. and. equally. enforced.. . The. goal. is. equitable.treatment.for.all.without.endorsing.any.particular.point.of.view.or.belief. system. . Recurring.assessments.that.measure.performance.and.impact.of.repeal.on.military. readiness,.cohesion,.and.effectiveness.are.important.

Note on the Service Academy White Papers
The.Service.academy.white.papers.occupy.a.unique.position.in.the.scholarship. on.military.service.by.gays.and.lesbians.in.the.United.States,.primarily.because.Service. academies.are.responsible.for.developing.future.officers.and.preparing.them.for.military. leadership.. . The. current. legal. and. legislative. landscape. is. unclear,. but. it. is. likely. that. this.issue.will.be.an.ongoing.source.of.debate.among.Service.members.as.the.broader. national.conversation.about.sexual.orientation.continues...Academy.and.ROTC.students. of.today.will.be.asked.to.lead.any.changes.that.may.arise.in.the.future,.first.as.junior. officers,.and.later.as.commanders.and.senior.leaders...Current.academy.perspectives,. therefore,.have.an.important.impact.on.leadership.trends.in.the.years.ahead...Further,.as. educational.institutions,.the.academy.faculties.represent.some.of.the.best.thinking.of.the. Military.Services...The.white.papers.not.only.provide.a.rigorous.analytical.approach.to. the.issue.of.gay.and.lesbian.service,.but.also.reflect.the.breadth.of.first-hand.command. experience.of.senior.military.officers...For.these.reasons,.the.Support.Plan.draws.on.the. analysis.and.conclusions.of.those.papers.to.inform.its.approach.to.implementation..

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III

PRE-REPEAL STAGE

The. pre-repeal. stage. would. begin. at. the. direction. of. the. Secretary. of. Defense,. prior.to.the.enactment.of.any.legislation.that.would.bring.about.repeal.of.10.U.S.C..§.654.. . During.this.stage,.the.Department.of.Defense.and.the.Services.would.continue.to.review. existing.policies.and.issuances.affected.by.repeal,.and.prepare.new.or.revised.issuances. based. on. the. recommendations. in. the. Working. Group’s. report,. should. the. Secretary. approve.those.recommendations...The.Department.of.Defense.and.the.Services.would. also.develop.education.and.training.materials.and.communications.plans.that.would.be. used.in.the.implementation.stage... Because. the. pre-repeal. stage. assumes. that. no. repeal. legislation. has. yet. been. passed. by. Congress,. this. section. focuses. on. actions. that. may. appropriately. be. taken. prior.to.Congressional.action.and.while.10.U.S.C..§.654.remains.in.effect.

Key Implementation Message
As. previously. mentioned,. the. key. message. for. successful. implementation. is. Leadership-Professionalism-Respect.. . Among. these. three,. leadership. matters. most.. . Leaders.at.all.levels.of.the.chain.of.command.set.the.example.for.members.in.the.unit. and.must.be.fully.committed.to.DoD.policy.to.sustain.unit.effectiveness,.readiness,.and. cohesion...All.Service.members.must.remember.their.professional.military.obligations. and.their.oath.to.support.and.defend.the.U.S..Constitution...In.the.profession.of.arms,. adherence.to.military.policy.and.standards.of.conduct.is.essential.to.unit.effectiveness,. readiness,.and.cohesion...Finally,.each.member.of.the.unit.must.be.treated.with.respect. and. dignity.. . A. clearly. articulated. message. of. Leadership-Professionalism-Respect. will.enable.any.change.in.policy.to.be.executed.with.minimal.disruption.to.the.force.

Pre-Repeal Overview
During.the.pre-repeal.stage,.the.Department.of.Defense.and.the.Services.should. prepare.for.repeal.in.four.key.areas:.policies.and.regulations,.education.and.training,. leadership.communication,.and.implementation.assessment.

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A. Legal, Policy, and Regulatory Issues . Review.and.prepare.for.revision.of.necessary.policies,.regulations,.and.instructions. affected.by.repeal. . Review.and.prepare.for.required.changes.to.the.Uniform.Code.of.Military.Justice. (UCMJ).and.the.Manual for Courts-Martial.(MCM). . Further.study.the.fiscal.impact.and.timing.of.repeal.actions.

B. Education and Training . Services. draft. initial. training. documents. and. lesson. plans. for. specialty. areas. (e.g.,.judge.advocates,.chaplains,.medical,.personnel,.recruiters).and.the.force. . Services. prepare. content. for. Service. member. education. (e.g.,. FAQs,. leader. toolkits,.vignettes.for.issues.related.to.repeal)...Plan.for.distribution.via.various. media:..manuals,.websites,.and.social.media. . Services.develop.training.documents.and.lesson.plans.for.BMT,.officer.accessions,. professional.schools,.and.other.educational.forums. . Develop. sexual. orientation. information. for. future. incorporation. into. human. relations.and.sexual.assault.prevention.training.programs.as.appropriate. . Develop.informational.materials.appropriate.for.distribution.to.military.spouses,. supporters,.and.families.

C. Leadership Communications . Develop.and.articulate.a.clear.leadership.vision. . Prepare.memoranda.to.be.issued.by.senior.DoD.and.Service.military.and.civilian. leaders. . Prepare.press.releases.and.senior.leader.talking.points. . Inform. retired. and. active. duty. General. Officer. and. Senior. NCOs/CPOs. on. the. Working.Group.study.and.recommendations..

D. Pre-Repeal Preparation for Implementation Follow-On Review . Identify.and.begin.to.prepare.appropriate.monitoring.mechanisms.to.measure. the.success.of.follow-through.on.repeal....

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Pre-Repeal Analysis
A. Legal, Policy, and Regulatory Issues The. Working. Group. reviewed. existing. DoD. policies,. regulations,. and. UCMJ. articles.related.to.repeal.and.recommends.the.Department.of.Defense.and.the.Services. review.the.following.and.develop.appropriate.guidance.in.the.pre-repeal.stage:5... 1. Separation for Homosexual Conduct . DoDI.1332.14,.Enlisted Administrative Separations,.March.29,.2010,.and.DoDI. 1332.20,.Officer Separations,.March.29,.2010,.should.be.amended.to.eliminate. homosexual.conduct.as.a.basis.of.separation. . DoD.discharge.code.for.homosexual.conduct.should.be.deleted. . Services. should. review. any. specific. instructions. or. regulations. regarding. separations.on.the.basis.of.homosexual.conduct,.along.with.any.corresponding. separation.and.re-enlistment.codes......

2. Standards of Conduct In. the. Working. Group’s. engagements. with. the. force. many. Service. members.questioned.whether.standards.of.conduct.would.be.maintained.after. repeal. of. Don’t. Ask,. Don’t. Tell.. . Many. of. these. concerns. were. about. conduct. that.is.already.regulated.in.the.military.environment,.regardless.of.the.sexual. orientation.of.the.individuals.involved..... As.such,.the.Working.Group.does.not.recommend.an.extensive.set.of.new. or. revised. standards. of. conduct. in. the. event. of. repeal.. . Instead,. the. Working. Group.recommends.that.the.Department.of.Defense.issue.generalized.guidance. that.all.standards.of.personal.and.professional.conduct.should.apply.uniformly. without. regard. to. sexual. orientation.. . The. Working. Group. also. recommends. that.the.Services.review.existing.standards.of.conduct.to.ensure.that.they.are. sexual. orientation-neutral. and. provide. adequate. guidance,. to. the. extent. each. Service.considers.appropriate,.in.the.following.areas:.. . Public.Displays.of.Affection.(PDA) . Dress.and.Appearance. . Unprofessional.Relationships . Harassment
5. .This.is.not.intended.to.be.an.exhaustive.list...The.Working.Group.anticipates.that.there.may.be.additional. policies,.directives,.and.instructions.not.identified.here.that.require.review.and,.where.necessary,.amendment. or.alteration.

15

The.Working.Group.recognizes.the.uncertainty.many.Service.members. currently.have.about.this.issue.and.notes.that.commanders.will.be.instrumental. in.providing.clarity.for.their.units.where.there.may.be.confusion...Therefore,.the. Working.Group.strongly.recommends.that.commanders.rely.on.the.FAQs.and. vignettes.provided.in.this.Support.Plan.to.answer.questions.and.communicate. policies.to.Service.members...In.the.event.of.repeal,.leaders.must.ensure.that. all.Service.members.understand.that.the.military’s.current.high.standards.of. conduct.will.continue.to.apply.to.all.Service.members. . Services. should. aim. to. ensure. they. have. standards. clearly. addressing. the. responsibility.of.leaders,.supervisors,.and.subordinate.personnel.at.all.levels. to. foster. unit. cohesion,. good. order. and. discipline,. respect. for. authority,. personal.safety,.and.mission.accomplishment. . Leaders.at.all.levels.should.understand.that.repeal.does.not.change.their.duty.to. ensure.the.impartial.administration.of.standards.of.conduct....In.cases.where. conduct.is.prohibited,.leaders.should.be.expected.to.take.unbiased.corrective. or.disciplinary.action.as.necessary.to.preserve.good.order.and.discipline,.unit. cohesion,.morale,.military.readiness,.and.combat.effectiveness..... . Service.members.should.understand.they.will.be.held.accountable.for.their. behavior.without.regard.to.sexual.orientation..

3. Moral and Religious Concerns In.the.Working.Group’s.engagements.with.the.force,.a.large.number.of. Service. members. expressed. religious. and. moral. objections. to. homosexuality. or.to.serving.alongside.someone.who.is.gay...Some.feared.repeal.of.Don’t.Ask,. Don’t.Tell.might.limit.their.individual.freedom.of.expression.and.free.exercise.of. religion,.or.require.them.to.change.their.personal.beliefs.about.the.morality.of. homosexuality...The.concerns.expressed.by.the.force,.including.the.concerns.of. many.in.the.community.of.3,000.military.chaplains,.should.not.be.downplayed.. . In.today’s.U.S..military,.people.of.very.different.moral.values.and.religious. convictions. already. co-exist,. work,. live,. and. fight. together. on. a. daily. basis.. . Policies.regarding.Service.members’.individual.expression.and.free.exercise.of. religion.already.exist.and.are.adequate...Therefore,.the.Working.Group.does.not. recommend.any.policy.change.regarding.Service.members’.exercise.of.religious. beliefs,.nor.has.it.recommended.any.change.to.policies.on.the.chaplains.corps. and.its.duties...Service.members,.to.include.chaplains,.will.neither.be.encouraged. nor. required. to. change. their. personal. views. and. religious. beliefs;. they. must,. however,.continue.to.respect.and.serve.with.others.who.hold.different.views.and. beliefs...Specifially.for.chaplains,.the.existing.guidance.developed.by.and.for.our. chaplains,.should.be.reiterated.as.part.of.any.education.and.training.concerning. repeal...These.regulations.strike.an.appropriate.balance.between.protecting.a. chaplain’s.First.Amendment.freedoms.and.a.chaplain’s.duty.to.care.for.all...

16

4. Equal Opportunity The.Working.Group.does.not.recommend.that.the.Department.of.Defense. place.sexual.orientation.alongside.race,.color,.religion,.sex,.and.national.origin. as. a. class. eligible. for. various. diversity. programs,. tracking. initiatives,. and. the. Military.Equal.Opportunity.program.complaint.resolution.processes..Instead,.if. a.Service.member.experiences.inappropriate.interpersonal.behavior.where.sexual. orientation.is.a.factor,.he.or.she.should.use.existing.(non-MEO).mechanisms.to. file.the.proper.complaint. The. Working. Group. recommends. that,. in. a. post-repeal. environment,. gay.and.lesbian.Service.members.be.treated.under.the.same.general.principles. of. military. equal. opportunity. policy. to. “promote. an. environment. free. from. personal,. social,. or. institutional. barriers. that. prevent. Service. members. from. rising. to. the. highest. level. of. responsibility. possible”. and. to. evaluate. Service. members.“only.on.individual.merit,.fitness,.and.capability.”.. The.Department.of.Defense.should.issue.guidance.on.the.prevention.of. discrimination,.harassment,.or.abuse.based.on.sexual.orientation. . Sexual.orientation.may.not,.in.and.of.itself,.be.a.factor.in.accession,.promotion,. or.other.personnel.decision-making. . Gay.and.lesbian.Service.members,.like.all.Service.members,.shall.be.evaluated. only.on.individual.merit,.fitness,.and.capability... . Harassment.or.abuse.based.on.sexual.orientation.is.unacceptable. . All. Service. members. are. to. treat. one. another. with. dignity. and. respect. regardless.of.sexual.orientation.

The. Department. of. Defense. and. the. Services. should. ensure. that. MEO. policies.are.clearly.communicated.to.the.force.so.Service.members.and.leaders. understand.the.proper.manner.in.which.to.process.discrimination.complaints. related.to.sexual.orientation.issues. The.Department.of.Defense.should.review.its.current.MEO.Program.as. established.in.DoDD.1350.2,.Department of Defense Military Equal Opportunity (MEO) Program,.August.18,.1995,.to.discuss.how.allegations.based.on.harassment. and.“sex.stereotyping”.are.actionable.under.the.DoD.MEO.program,.to.the.extent. these.allegations.are.based.on.gender.(sex).as.opposed.to.sexual.orientation... The.Department.of.Defense.should.consider.whether.to.issue.guidance.on. how. to. process. Service. member. complaints. alleging. discrimination. based. on. sexual.orientation...Any.such.guidance.should.discuss.the.distinction.between. complaints. based. on. sexual. orientation. and. complaints. based. on. sexual. harassment.or.sex.stereotyping.(gender).which.are.actionable.under.DoD.MEO.. .

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Defense.Equal.Opportunity.Management.Institute.(DEOMI).should.draft. additional.fact-based.vignettes.to.supplement.those.in.Appendix.D.in.order.to. aid. leaders. in. identifying. and. resolving. discrimination-based. complaints. on. “sex.stereotyping”.and.“sexual.orientation.”6... All. Service. MEO. programs. should. be. reviewed. to. ensure. consistency. regarding.discrimination.based.on.“sex.stereotyping”.and/or.“harassment.” 5. Collection and Retention of Sexual Orientation Data The. Working. Group. does. not. recommend. any. new. guidance.. The. Department. of. Defense. and. the. Services. should. continue. their. policy. against. requesting,.collecting,.or.maintaining.information.about.the.sexual.orientation. of.Service.members. 6. UCMJ The. Working. Group. recommends. that. the. Department. of. Defense. proceed. with. the. Joint. Service. Committee. (JSC). proposals. to. seek. repeal. of. Article.125.of.the.UCMJ.in.its.entirety.and.to.amend.Article.120.of.the.UCMJ.to. include.forcible.sodomy.and.sodomy.offenses.against.children...The.Department. of. Defense. should. also. proceed. with. the. JSC’s. related. proposal. to. amend. the. Manual for Courts-Martial. (MCM). to. include. other. aspects. of. Article. 125. not. barred.by.Federal.court.decisions.(e.g.,.sodomy.that.is.Service.discrediting).in. the.punitive.offenses.section.of.the.MCM.under.Article.134... Additionally,. the. Working. Group. recommends. the. JSC. review. all. other. UCMJ.offenses.involving.sexual.conduct.or.inappropriate.relationships.to.ensure. sexual. orientation-neutral. application.. For. example,. the. offense. of. adultery. defined.in.the.Manual for Courts-Martial.should.be.revised.to.apply.equally.to. heterosexual.and.homosexual.sex.that.is.engaged.in.by.or.with.a.married.person. 7. Privacy and Cohabitation In. most. of. the. Working. Group’s. engagements. with. the. force,. a. large. number.of.Service.members.expressed.their.discomfort.with.sharing.bathroom. facilities.or.living.quarters.with.those.they.know.to.be.gay.or.lesbian..Leaders. at. all. levels. should. be. aware. of. the. frequency. and. intensity. of. discussion. on. this. topic,. and. the. broad. range. of. views. that. exists. among. Service. members.. . As. with. standards. of. conduct,. leaders. should. rely. on. the. FAQs. and. vignettes. provided. in. this. Support. Plan. to. answer. questions. and.communicate. policies. to.the.force...The.Working.Group.recommends.that.the.Department.of.Defense. prohibit.the.creation.of.separate.bathroom.and.shower.facilities.based.on.sexual. orientation...Besides.being.logistically.impractical,.“separate.but.equal”.facilities. would.wrongly.isolate.and.stigmatize.some.Service.members...Consistent.with.
6. .DEOMI.assisted.in.the.development.of.the.vignettes.in.the.Appendix.D.

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the. military. mission,. commanders. retain. their. authority. to. alter. berthing. or. billeting.assignments.and.may.accommodate.privacy.concerns.of.individuals.on. a.case-by-case.basis....... Therefore,.the.Working.Group.recommends.that:.... . The.Department.of.Defense.prohibit.berthing.or.billeting.assignments.based. on. sexual. orientation,. except. that. commanders. should. retain. the. authority. to.alter.berthing.or.billeting.assignments.on.an.individualized,.case-by-case. basis,. in. the. interest. of. maintaining. morale,. good. order,. and. discipline,. consistent.with.performance.of.mission. . The.Department.of.Defense.prohibit.the.designation.of.separate.bathroom.or. bathing.facilities.based.on.sexual.orientation.except.that.commanders.would. have. the. authority. to. accommodate. privacy. requests. on. an. individualized,. case-by-case. basis,. in. the. interest. of. maintaining. morale,. good. order,. and. discipline,.consistent.with.performance.of.mission.

8. Benefits For. reasons. laid. out. in. the. recommendations. section. of. the. Working. Group’s.report,.the.Working.Group.recommends.that.the.Department.of.Defense. not. create. a. new. status. of. “committed. relationship”. applicable. to. same-sex. relationships. for. the. purpose. of. benefits. eligibility. at. this. time.. . The. issue. of. benefits.eligibility.is.very.complex.and.is.part.of.the.ongoing.national.political. and. legal. debate. concerning. same-sex. relationships. and. gay. marriage.. . The. Working.Group.recommends.that.the.Department.of.Defense.and.the.Services. continue.to.treat.all.Service.members.not.in.a.federally.recognized.marriage.as. “single.Service.members”.for.benefits.purposes...However,.to.ensure.all.Service. members.have.the.support.of.important.people.in.their.lives—be.they.a.spouse,. long-time.partner,.parent,.or.friend—the.Working.Group.recommends.that.the. Department.of.Defense.and.the.Services.review.those.benefits.that.may,.where. justified.from.a.policy,.fiscal,.and.feasibility.standpoint,.be.revised.to.give.the. Service.member.the.discretion.to.designate.a.person.or.persons.of.their.choosing. as.a.beneficiary...By.extending.these.benefits.and.resources,.the.Department.of. Defense.would.enhance.the.vital.role.that.a.Service.member’s.supporters.can. play. in. enabling. them. to. accomplish. the. mission,. especially. during. times. of. deployment.stress.. Service.members.can.currently.designate.beneficiaries.of.their.choosing. for.several.benefit.and.notification.purposes...Federal.law.and.DoD.Instructions. often.establish.the.priority.for.the.distribution.of.benefits.and.notifications.for.

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Service.members...For.married.Service.members,.the.Service.member’s.spouse. is.typically.the.first.beneficiary,.followed.by.children,.parents,.and.then.other. relatives.in.the.priority.set.by.law...For.single.Service.members,.the.typical.order. is.children,.followed.by.parents,.and.then.other.relatives....However,.all.Service. members.may.designate.other.people.to.receive.some.benefits.and.notifications.. . These. designations. are. usually. made. on. the. Service. member’s. DD. Form. 93,. Record of Emergency Data.(RED).and.the.Servicemembers’.Group.Life.Insurance. (SGLI).Policy...Service.members.may.want.to.designate.permissible.benefits.to. someone.other.than.a.person.in.the.priority.list.set.by.law...This.could.include. an. unmarried. partner,. significant. other,. friend,. or. distant. relative.. . . Service. members. must. be. diligent. to. ensure. their. desired. beneficiaries. are. properly. documented.in.the.event.the.Service.member.dies.or.goes.missing.while.serving.. . As.such:.. . The. Department. of. Defense. and. the. Services. should. ensure. benefit-related. administrative.processes.and.educational.materials.are.sufficient.to.provide. Service. members. with. the. information. they. need. to. properly. designate. beneficiaries.and.ensure.that.people.they.designate.receive.proper.notification. in.the.event.the.Service.member.dies.or.goes.missing.while.serving... . Commanders.and.other.leaders.should.proactively.counsel.subordinates.on. the.need.to.keep.emergency.data.current...A.thorough.review.of.all.emergency. data.must.be.conducted.on.a.regular.basis.and.prior.to.any.deployment. . Table.1.lists.benefits.the.Working.Group.identified.for.which.Service.members. can.currently.designate.to.a.beneficiary.of.his.or.her.choosing..This.may.not. be.an.exhaustive.list..The.Working.Group.recommends.that.the.Department. of. Defense. and. the. Services. study. other. possible. benefits. and. beneficiary. designations.that.currently.exist. . The. Department. of. Defense. and. the. Services. should. determine. what. other. additional. benefits. and. beneficiary. designations. could. be. extended. to. supporters.of.single.Service.members.as.allowed.by.law.and.where.justified. by.policy,.fiscal,.and.feasibility.considerations....

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Table 1. Benefits for Which Service Members Can Currently Identify a Beneficiary of His or Her Choosing
Benefit
• S e r v i c e m e m b e r s ’ G r o u p L i f e I n s u r a n c e ( S G L I ) – E l i g i b l e B e n e f i c i a r y • Ve t e r a n s ’ G r o u p L i f e I n s u r a n c e ( V G L I ) – E l i g i b l e B e n e f i c i a r y

Eligibility
A S e r v i c e m e m b e r c a n d e s i g n a t e a ny o n e t o r e c e i ve S G L I / V G L I p ay m e n t s i f p r o p e r l y d e s i g n a t e d a s a b e n e f i c i a r y . I f u n d e s i g n a t e d , a p e r s o n m i g h t o n l y r e c e i ve a s a r e s i d u a l b e n e f i c i a r y i f a u t h o r i ze d by l a w. ( 3 8 U S C § § 19 6 5 -19 8 0 A ) A S e r v i c e m e m b e r c a n d e s i g n a t e a ny o n e t o r e c e i ve u n u s e d c o n t r i b u t i o n s i f p r o p e r l y d e s i g n a t e d a s a n S G L I b e n e f i c i a r y . ( 3 8 U S C § § 3 2 0 1- 4 3 a n d 3 8 U S C § § 3 0 11- 3 0 2 0 )

• P o s t V i e t n a m - E r a Ve t e r a n s A s s i s t a n c e P r o g r a m ( V E A P ) • A l l - Vo l u n t e e r F o r c e E d u c a t i o n a l A s s i s t a n c e ( V E A ) P r o g r a m ( M o n t g o m e r y G . I . B i l l – A c t i ve D u t y ) , D e a t h B e n e f i t • B e n e f i c i a r y f o r D e a t h G r a t u i t y • B e n e f i c i a r y f o r F i n a l S e t t l e m e n t o f A c c o u n t s : D e c e a s e d M e m b e r s ( P ay a n d A l l ow a n c e s ) • S u r v i vo r B e n e f i t P l a n ( S B P )

A S e r v i c e m e m b e r m ay d e s i g n a t e o n t h e D D F o r m 9 3 a p e r s o n o r p e r s o n s o f t h e i r c h o o s i n g t o r e c e i ve t h e f u l l v a l u e o f t h i s b e n e f i t . (10 U S C § 147 7 a n d 10 U S C § 27 71 ; I m p l e m e n t e d by D o D I 13 0 0 .18 ) A S e r v i c e m e m b e r m ay d e s i g n a t e a ny o n e t o r e c e i ve t h e r e t i r e m e n t a n n u i t y i f t h e S e r v i c e m e m b e r i s n o t m a r r i e d a n d d o e s n o t h ave a d e p e n d e n t c h i l d . (10 U S C § § 14 47-14 5 5 ; I m p l e m e n t e d by D o D I 13 3 2 . 4 2 ) A S e r v i c e m e m b e r c a n a p p o i n t a ny o n e a s a d e s i g n a t e d c a r e g i ve r f o r a wo u n d e d S e r v i c e m e m b e r d u r i n g r e c ove r y . ( P u b L a w 110 -18 1 S e c s 16 0 1 - 1676 ; I m p l e m e n t e d by D O D I 13 0 0 . 2 4 ) A S e r v i c e m e m b e r c a n d e s i g n a t e a ny o n e a s a b e n e f i c i a r y . ( S e e C h a p t e r s 8 3 - 4 o f T i t l e 5 . )

• R i g h t s R e g a r d i n g C a r e , M a n a g e m e n t , a n d Tr a n s i t i o n o f R e c ove r i n g S e r v i c e M e m b e r ( W o u n d e d W a r r i o r A c t ) • T h r i f t S av i n g s P l a n ( T S P ) B e n e f i c i a r y D e s i g n a t i o n

Notes : 1. E l i g i b i l i t y a l w ay s f o l l o w s a p r i o r i t y s e t b y l a w u n l e s s o t h e r w i s e p r o p e r l y d e s i g n a te d b y t h e S e r v i c e m e m b e r s . S e r v i c e m e m b e r s s h o u l d a l w ay s c o n f i r m t h e p r o p e r d e s i g n a t i o n o f a l l b e n e f i t s w i t h t h e a p p r o p r i a te i n s t a l l a t i o n p e r s o n n e l . 2 . F e d e r a l l a w w i l l n o t p e r m i t a n u n m a r r i e d p a r t n e r to q u a l i f y a s a “ s p o u s e ,” “ w i d o w,” o r “ w i d o w e r.” 3 . U n u s e d b e n e f i t s n o t p r o p e r l y d e s i g n a te d b y t h e S e r v i c e m e m b e r w i l l f o l l o w t h e p r i o r i t y set by law for each benefit.

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9. Medical Policy The.Working.Group.has.assessed.that,.in.the.event.of.repeal,.there.will.be. no.change.in.the.safety.of.the.blood.supply.and.no.significant.change.in.overall. HIV.prevalence...Consistent.with.the.letter.provided.to.the.Working.Group.by.the. Surgeons.General.of.the.military.departments,.the.Working.Group.recommends. no.new.policies.or.modifications.to.existing.medical.policies. 10. Accessions and Recruiting Policy As.stated.in.item.5.above,.it.is.the.policy.of.the.Department.of.Defense. and.the.Services.not.to.ask.applicants.for.entry.into.military.service.to.reveal. their.sexual.orientation...The.Working.Group.does.not.recommend.any.change. to.this.policy... . All. recruiting. and. accession. instructions. of. Service. members. should. be. changed. to. remove. references. to. homosexual. conduct. as. a. basis. for. administrative. separation. or. for. denial. of. entry. into. military. service.. . In. particular,.appropriate.portions.of.DoD.Instruction.1304.26.should.be.deleted. . Recruiter. training. should. continue. to. include. a. section. addressing. the. prohibition. on. requesting. or. collecting. information. regarding. applicants’. sexual.orientation.. . Interaction. with. the. public. is. a. fundamental. part. of. recruiters’. mission.. . Therefore,.recruiters.should.be.prepared.to.answer.questions.on.repeal.that. they.will.inevitably.receive.from.potential.recruits.and.in.public.venues. . Language. pertaining. to. administrative. separation. for. homosexual. conduct. should. be. removed. from. briefings. given. to. applicants. for. enlistment. and. appointment. regarding. separation. policy. and. personal. conduct. in. the. Military.Services.. . Policies. derived. from. subsection. (c). of. 10. U.S.C.. §. 654. requiring. every. applicant.be.briefed.on.the.homosexual.conduct.prohibition.in.the.Military. Services,. should. be. deleted. or. amended. and. relevant. references. from. the. periodic.briefing.requirement.for.enlisted.members.should.be.removed. . The.policy.to.brief.every.applicant.for.enlistment.on.personal.conduct.while. at. the. Military. Entrance. Processing. Station. (MEPS). should. be. updated. to. reflect.changes.7.. . USMEPCOM. Form. 601-23-5-R-E,. Introductory Pre-Accession Interview (requiring. applicant. to. affirm. he/she. has. been. briefed. on. DoD. separation. policies.and.restrictions.on.personal.conduct).should.be.updated.as.necessary.. .

7.

.MEPS.personnel.are.required.to.administer.the.DoD.Applicant.Briefing.on.Separation.Policy.and.Restrictions. on. Personal. Conduct. in. the. Military. Services,. USMEPCOM. Form. 601-23-4-E,. to. all. applicants. processing. through.MEPS.for.enlistment.

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 . DoD. Applicant. Briefing. on. Separation. Policy. and. Restrictions. on. Personal. Conduct. in. the. Military. Services. for. Officer. Candidate. School. personnel. should.be.amended. . DoD.Directive.1322.22,.requiring.each.Service.cadet.or.midshipman.be.briefed. on. separation. policies. within. 72. hours. of. reception. should. be. amended. as. appropriate.

11. Re-Accession The.Working.Group.recommends.that.the.Department.of.Defense.issue. guidance.to.the.Services.permitting.Service.members.previously.separated.on. the. basis. of. homosexual. conduct. to. be. considered. for. reentry,. assuming. they. qualify.in.all.other.respects....... . Prior. service. personnel. who. meet. all. qualifying. conditions. and. were. discharged.solely.on.the.basis.of.homosexual.conduct.under.10.U.S.C..§.654. should. have. the. same. opportunity. for. reentry. as. other. similarly. qualified. prior.Service.personnel. . The.fact.that.the.basis.of.the.separation.was.homosexual.conduct.should.not. be.considered.to.the.detriment.of.the.applicant...If,.however,.there.are.reasons. for.discharge.other.than.just.homosexual.conduct,.these.may.be.considered.in. the.way.they.would.for.any.other.Service.member...For.example,.a.separation. that.resulted.in.an.“other.than.honorable”.characterization.of.service.would. disqualify.a.previously-discharged.Service.member.from.reentry.under.this. policy.recommendation.... . The. Department. of. Defense. should. leave. to. the. discretion. of. each. Service. how. to. change. reentry. codes. in. some. uniform. manner. or,. alternatively,. to. issue.guidance.to.ensure.that.a.disqualifying.reentry.code.on.a.DD.Form.214. will.not.prohibit.consideration.of.a.candidate.qualified. for.reentry...(Some. prior.Service.personnel.may.desire.the.DD.Form.214.to.remain.historically. accurate.).. . The.Department.of.Defense.and.the.Services.should.process.claims.for.redress. by.Service.members.previously.separated.under.10.U.S.C..§.654.according.to. policies.and.procedures.applicable.to.all.prior.Service.members.(i.e.,.through. Service. Boards. for. Correction. of. Military. Records. and. Discharge. Review. Boards). . The. Department. of. Defense. should. coordinate. with. the. Department. of. Veterans. Affairs. to. determine. if. any. veteran. benefits. for. Service. members. separated.under.10.U.S.C..§.654.need.to.be.reinstated...

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12. Release from Service Commitments The.Working.Group.does.not.recommend.additional.policies.or.procedures. to.allow.for.release.from.service.commitments.for.Service.members.opposed.to. repeal.of.10.U.S.C..§.654.or.to.serving.and.living.with.gay.and.lesbian.Service. members... . Service.members.may.request.to.be.voluntarily.discharged.under.the.Military. Department. Secretary’s. plenary. authority.. . Under. current. policy,. such. discretionary.discharge.may.only.be.granted.when.the.Military.Department. Secretary.has.determined.the.early.separation.would.be.in.the.best.interest. of.the.Service... . If.a.chaplain.is.unable.to.reconcile.serving.with.or.caring.for.gay.and.lesbian. Service. members. with. his. or. her. faith,. the. chaplain. may. request. that. the. relevant. endorsing. agency. withdraw. its. ecclesiastical. endorsement. for. him. or.her...This.would.trigger.an.administrative.separation.under.DoDI.1304.28.. .

13. Family Readiness Benefits. and. services. are. discussed. in. item. 8. above.. . In. addition,. the. Department.of.Defense.and.the.Services.should.publish.information.to.military. spouses.and.families.about.repeal...The.Working.Group.asked.military.spouses.to. identify.how.they.would.like.to.receive.information.about.repeal...The.responses. to.that.question.are.presented.in.Table.2:
Table 2. Spouse Preferences for Information on Repeal from the Spouse Survey
Question 11. If Don’t Ask, Don’t Tell is repealed, the military will want to prepare and assist spouses in understanding the new policy. How would you like the military to provide you with information on the new policy? MARK ALL THAT APPLY.
Overall
N o s p e c i a l a c t i v i t i e s o r c o m m u n i c a t i o n s wo u l d b e n e c e s s a r y D i s t r i b u t e p r i n t e d i n f o r m a t i o n t o s p o u s e s a b o u t r e p e a l P r ov i d e i n f o r m a t i o n a b o u t t h e r e p e a l o n m i l i t a r y W e b s i t e s H ave i n t e r a c t i ve c h a t s av a i l a b l e o n l i n e t o a n s w e r q u e s t i o n s f r o m S e r v i c e m e m b e r s p o u s e s C o n d u c t i n f o r m a t i o n s e s s i o n s o n b a s e s a n d i n s t a l l a t i o n s a b o u t r e p e a l P r ov i d e i n f o r m a t i o n t h r o u g h m i l i t a r y c h a p l a i n s t r a i n e d t o wo r k w i t h s p o u s e s a n d f a m i l y m e m b e r s o n r e p e a l P r ov i d e i n f o r m a t i o n t h r o u g h o t h e r m i l i t a r y c o u n s e l o r s t r a i n e d t o w o r k w i t h s p o u s e s a n d f a m i l y m e m b e r s o n r e p e a l P r ov i d e i n f o r m a t i o n t h r o u g h F a m i l y R e a d i n e s s G r o u p / W o r k- L i f e P r o g r a m l e a d e r s t r a i n e d t o w o r k w i t h s p o u s e s a n d f a m i l y m e m b e r s o n r e p e a l O f f e r c o u r s e s t o s p o u s e s o n h ow t o d i s c u s s r e p e a l w i t h i n t h e i r f a m i l i e s Other 43.0 % 37. 4 % 34.3 % 8.2% 13 . 5 % 14 . 5 % 14 .1% 21. 2 % 9 .1% 3.6 %

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Based. on. these. results. and. engagements. with. the. force. and. military. spouses,.the.Working.Group.recommends.that.the.Department.of.Defense.and. the.Services.provide.information.to.spouses.and.families.as.follows: . The.largest.percentage.of.spouses.who.indicated.they.would.like.information. about.repeal.would.like.printed.or.web-based.materials... Family.readiness. personnel. could. use. information. in. the. appendices. of. this. Support. Plan. to. develop. printed. information. for. distribution. to. military. families.. . This. information. should. also. be. posted. to. military. family. websites. (e.g.,. MilitaryOneSource.com).. . Family. support. staff,. including. counselors. and. military. chaplains,. should. be.trained.to.assist.Service.members.and.their.families.in.discussing.issues. related.to.repeal...Links.to.helpful.resources.for.talking.to.children.and.youth. about.repeal.and.sexuality.could.be.placed.on.military.family.websites. . The. ability. to. send. in. questions. to. the. Department. of. Defense. and. Service. experts.on.repeal.would.help.ensure.accurate.information.is.available... . Place.links.to.web-based.resources.in.printed.materials...Wallet-cards.could. be.an.efficient.and.cost-effective.manner.to.advertise.web.site.locations.

B. Pre-Repeal Education and Training The.Department.of.Defense.and.the.Services.should.begin.to.prepare.education. and. training. programs. for. the. force. in. the. pre-repeal. stage.. . The. Working. Group. developed.a.framework.for.education.and.training.with.three.tiers.of.education,.each. targeted.towards.different.categories.of.DoD.personnel.for.the.most.efficient.distribution. of.information.8..A.tiered.approach.to.education.and.training.will.enable.the.Services. to.tailor.information.to.a.Service.member’s.position,.occupational.specialty,.and.level.of. responsibility:...
Tier 1 (Expert Level). . Material. targeted. toward. Service. members. responsible. for. administration.or.policy.implementation,.or.whose.occupation.specialty.requires.that. the.Service.member.needs.to.understand.the.implications.of.any.policy.change...At.a. minimum.this.includes:..judge.advocates.and.civilian.lawyers,.chaplains,.recruiters,. personnel. specialists,. military. law. enforcement. personnel,. military. criminal. investigators,.family.support.staff,.military.equal.opportunity.advisors,.and.health. services.personnel. Tier 2 (Leader Level).. . Material. targeted. toward. Service. members. in. leadership. positions.who.are.responsible.for.maintaining.standards.of.conduct,.good.order.and. discipline,.and.military.effectiveness...At.a.minimum.this.includes:..senior.leaders. (general/flag. officers. and. senior. executive. service),. commanding. officers,. chief.
8. .A.complete.description.of.the.recommended.education.and.training.guide.developed.by.the.Working.Group. is. located. in. Appendix. B.. . The. Working. Group. relied. on. the. expertise. of. Service. Headquarters. Training. leadership,.Service.Academy.and.War.College.academic.leadership,.OUSD(P&R).representation,.and.DEOMI. leadership.to.identify.the.training.requirements.associated.with.the.Working.Group.recommendations.

25

warrant. officers,. senior. enlisted. advisors,. senior. non-commissioned. officers. and. chief.petty.officers,.and.civilian.supervisors. Tier 3 (Service Member Level)...Material.designed.for.all.members.of.the.Military. Services,.to.be.distributed.as.soon.as.practical.after.passage.of.legislation.and.prior. to.the.effective.date.of.repeal,.and.during.accessions.training.for.all.personnel...At.a. minimum,.all.Service.members.should.be.briefed.on.the.new.policy.and.expectations. of.personal.conduct.in.the.military.

Education.and.training.guidance.at.Tiers.1.and.2.should.include.more.detailed. information.for.senior.leaders,.commanders,.and.personnel.responsible.for.implementing. policy.and.should.be.more.detailed.than.the.general.guidance.provided.to.all.Service. members.in.Tier.3...As.currently.envisioned,.Tiers.1.and.2.are.discretionary.requirements. provided.on.a.“need.to.know”.basis,.while.Tier.3.is.mandatory.to.ensure.the.education. and.training.of.all.personnel.on.policies.and.standards.of.conduct...Effective.education. and. training. ensures. that. Service. members. have. uniform,. clear. information,. which. allows.them.to.follow.new.policy.readily....The.Department.of.Defense.and.the.Services. should.prepare.much.of.the.education.and.training.in.the.pre-repeal.stage.in.order.to. enable. execution. of. education. and. training. in. the. implementation. stage. prior. to. the. effective.date.of.repeal. . The.education.and.training.framework.sets.out.what.training.must.be.provided,. to.whom,.and.the.appropriate.level.of.detail...The.question.of.how.to.conduct.the. training.should.be.left.to.Service.training.commands.as.much.as.possible. . The.framework.(see.Appendix.B).is.organized.in.tiers,.each.tier.describing. the.target.audience,.learning.objectives,.training.guidance,.and.measures.of. effectiveness.for.the.policy.topic.at.issue... . Much. of. the. Level. 1. and. 2. training. would. occur. as. early. as. practical. in. the. implementation.stage,.after.the.development.of.policies,.to.ensure.that.personnel. responsible.for.executing.those.policies.are.adequately.prepared...Tier.3.training. should.be.rolled.out.to.the.force.as.soon.as.possible.prior.to.the.effective.date.of. repeal. . The.Department.of.Defense.and.the.Services.must.ensure.that.deployed.troops. receive. adequate. training. quickly. and. without. disrupting. combat. operations.. . The. Working. Group. recommends. that. Service. members. deployed. to. a. combat. zone.be.informed.about.the.basics.of.the.change.in.policy.and.the.key.message. of. Leadership-Professionalism-Respect.. . The. message. to. these. troops. must. not.degrade.the.combat.mission.but.must.succinctly.and.clearly.inform.troops. of.the.new.policy.and.the.expectations.for.respecting.all.members.of.the.force.. . Additional.recommendations.on.education.and.training.of.deployed.troops.are. located.in.section.IV.(Implementation.Stage).

26

 . The.Department.of.Defense.and.the.Services.must.also.ensure.that.personnel.in. Special.Duty.assignments.(e.g.,.fellowships,.joint.assignments,.and.attaché.duty). are.informed.of.the.change.in.policy.expeditiously. . Recommendations. for. training. content. are. included. in. the. Recommended. Training.and.Education.Framework,.Leaders’.Implementation.Guide,.vignettes,. and.FAQs.(see.Appendices.B–D)...During.the.pre-repeal.stage.the.Services.should. adapt.this.material.to.their.Service.culture. . For. some. specialty. areas,. especially. combat. arms,. greater. proportions. of. those. surveyed. expressed. concerns. about. the. impact. of. repeal.. . Training. personnel.should.be.aware.of.particular.areas.of.concern.and.the.concerns.of. particular.specialties.within.the.force.(as.described.in.the.survey,.assessment,. and.recommendations.sections.of.the.report).when.they.develop.lesson.plans. and.educational.materials.

C. Pre-Repeal Leadership Communication Communication.from.DoD.leadership.should.consistently.reinforce.that,.unless. and.until.Don’t.Ask,.Don’t.Tell.may.be.repealed,.homosexual.conduct.remains.a.basis.for. administrative.discharge.and.existing.policies.remain.in.effect....This.section.recommends. an.approach.to.communications.based.on.the.findings.of.the.Working.Group.. 1. Pre-Repeal Internal Leadership Communication . Should. repeal. occur,. leadership. will. be. the. best. predictor. of. successful. transition.. . Leaders. throughout. the. chain. of. command. should. be. familiar. with. the. concerns.voiced.to.the.Working.Group.during.its.engagements.with.the.force.. . Senior.leaders.should.actively.explain.to.Service.members.the.Working.Group. process,.findings,.and.recommendations.... . Senior.leaders.should.reinforce.professional.military.values.such.as.respect. for. human. dignity,. integrity,. and. selfless. service. so. that. the. force. is. best. prepared.for.repeal.should.the.law.change...

2. Public Communication In.addition.to.internal.communications.for.the.force,.leadership.should. prepare.to.engage.with.the.public,.media,.and.key.constituencies.like.veterans’. groups,. Service. academy. graduate. organizations,. and. advocacy. groups. that. provided. input. to. the. Working. Group.. . The. message. should. emphasize. that,. with.or.without.repeal,.exemplary.behavior.is.expected.from.all.personnel.and. the.professional.focus.of.the.Services.will.remain.on.combat.readiness...Talking. points. should. be. prepared. for. leaders. and. targeted. for. different. audiences,. consistent.with.the.law.and.with.the.President’s.and.Secretary.of.Defense’s.intent. and.vision.

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D. Pre-Repeal Preparation for Implementation Follow-on Review The. Department. of. Defense. should. establish. baseline. metrics. for. post-repeal. review. and. an. ongoing. program. to. monitor. military. effectiveness. and. the. workforce. climate.after.repeal.to.ensure.continued.success.in.implementation,.as.specified.in.the. Working.Group’s.Terms.of.Reference... . In.keeping.with.the.theme.of.minimizing.impact.on.the.force,.the.Working.Group. recommends. that,. to. the. extent. possible,. assessments. be. incorporated. in. existing. surveys. such. as. the. DEOMI. Organizational. Climate. Survey. (DEOCS). and. DoD. IG. processes..(See.Appendix.E.). . The.Working.Group.does.not.anticipate.the.need.for.an.extensive.survey.similar.to. the. surveys. conducted. during. the. preparation.of. this. report.. . DEOMI. and.Service. MEO.specialists.should.be.consulted.to.provide.subject-matter.expertise.on.effective. DoD-wide.and.Service-specific.monitoring.approaches..

Summary
During. the. pre-repeal. stage,. the. primary. goals. are. the. preparation. of:. 1). the. necessary.policies,.regulations,.and.instructions.required.to.implement.a.repeal;.2).the. education.and.training.plans.that.will.best.inform.Service.members.and.their.families. of.the.changes.a.repeal.would.bring;.and.3).communications.plans.to.be.used.during.the. implementation.stage...Preparations.that.the.Department.of.Defense.and.the.Services. make. beforehand. will. enable. an. efficient. implementation,. should. 10. U.S.C.. §. 654. be. repealed...During.this.period,.the.Don’t.Ask,.Don’t.Tell.law.and.policy.remain.in.effect,. and.the.Department.of.Defense.is.obliged.to.and.will.enforce.the.law.

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IV

IMPLEMENTATION STAGE

The.implementation.stage.would.begin.upon.the.enactment.of.legislation.bringing. about.repeal.of.10.U.S.C..§.654,.should.such.legislation.be.enacted...This.stage.would.last. until.some.point.after.the.effective.date.of.repeal,.once.the.roll-out.of.new.policies.has. been.completed...During.the.implementation.stage,.prior.to.the.effective.date.of.repeal,. the.Department.of.Defense.and.the.Services.would.finalize.the.policy.revisions.started. during.the.pre-repeal.stage...Education.and.training.programs.necessary.to.prepare.the. force.for.repeal.and.to.communicate.the.upcoming.policy.changes.would.then.begin.. . Upon.the.effective.date.of.repeal,.the.Department.of.Defense.and.the.Services.would.put. any.new.or.revised.policies.into.effect.. The.Department.of.Defense.and.the.Services.must.be.mindful.during.this.stage. that,.until.the.effective.date.of.repeal,.10.U.S.C..§.654.and.associated.policies.remain.in. effect,.and,.as.such,.homosexual.conduct.remains.a.basis.for.separation.from.military. service.. . Depending. on. the. provisions. of. the. legislation. enacted,. the. Department. of. Defense.and.the.Services.may.need.to.adapt.the.content.of.this.section. Throughout.the.implementation.stage,.leaders.should.focus.on.the.key.message.of. Leadership-Professionalism-Respect...Committed,.joint.leadership.will.be.the.most. important.catalyst.for.success...Leaders.must.emphasize.the.professionalism.of.the.force,. and.promote.respect.among.Service.members.to.execute.the.new.policy.effectively...

Implementation Overview
RAND’s. approach. to. implementation. in. its. 2010. report. is. consistent. with. the. Working.Group’s.recommendations...The.implementation.chapter.in.the.RAND.report. is.a.good.supplement.to.this.Support.Plan.that.leaders,.trainers,.and.planners.may.find. useful. in. their. preparation. for. repeal.. . Specifically,. the. following. four. activities. are. helpful.in.framing.an.execution.strategy: A. Update and Publish Policies Policy. changes. drafted. by. the. Department. of. Defense. and. the. Services. should. be. distributed. quickly.. . These. initial. policies. may. need. revision. as. implementation. is. executed.

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B. Communicate the Change Information. should. also. be. straightforward. and. communicated. swiftly. to. the. force.. . The. vision. for. the. Department. of. Defense. should. be. clearly. articulated. and. standards. should. be. unambiguous. and. orientation. neutral. to. the. extent. possible.. . A. central. idea. that. leaders. should. promote. is. that. the. new. policies. require. changes. in. behaviors,.not.attitudes. C. Provide Training Training.should.be.efficient.and.should.not.burden.the.force...Expectations.for. behavior.should.be.clearly.stated...Training.should.answer.the.question.most.Service. members.will.ask.during.any.change.process:..“How.will.this.change.affect.me?”.Special. attention.should.be.paid.to.providing.education.and.training.for.deployed.forces.in.a. manner.that.does.not.impede.their.operations... D. Emphasize Key Implementation Message Leaders. should. promote. and. continually. reaffirm. the. key. implementation. message:..Leadership-Professionalism-Respect.during.implementation....

Implementation Analysis
A. Update and Publish Policies for Implementation Listed. below. are. legal,. policy,. and. regulatory. action. items. that. the. Working. Group. recommends. the. Department. of. Defense. and. the. Services. consider. during. the. Implementation.Stage: 1. Separation for Homosexual Conduct . Publish.new.versions.of.DoDI.1332.14,.Enlisted Administrative Separations (March. 29,.2010),.and.DoDI.1332.20,.Officer Separations.(March.29,.2010),.reflecting.the. elimination.of.homosexual.conduct.as.a.basis.of.separation... . Publish.regulations.eliminating.the.separation.code.for.homosexual.conduct.and. provide.guidance.on.how.to.interpret.DD-214s..... . Services. publish. amendments. to. Service-specific. instructions. or. regulations. regarding. separations. on. the. basis. of. homosexual. conduct,. along. with. any. corresponding.changes.to.separation.and.re-enlistment.codes......

2. Standards of Conduct . The.Department.of.Defense.should.issue.generalized.guidance.that.all.standards. of. personal. and. professional. conduct. shall. apply. uniformly. without. regard. to. sexual.orientation....The.Department.of.Defense.should.also.instruct.the.Services.

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to.review.their.policies.on.standards.of.conduct.to.ensure.that.they.are.sexual. orientation. neutral. and. provide. adequate. guidance,. to. the. extent. each. Service. considers.appropriate,.on.the.following.topics:...public.displays.of.affection.(PDA),. dress.and.appearance,.unprofessional.relationships,.and.harassment.... . Service.standards.should.clearly.address.the.responsibility.of.leaders,.supervisors,. and. personnel. at. all. levels. to. foster. unit. cohesion,. good. order. and. discipline,. respect.for.authority,.and.mission.accomplishment.

3. Moral and Religious Concerns . Current.DoD.and.Service.policies.on.Service.members’.ability.to.freely.exercise. their. religious. beliefs. are. adequate.. The. Working. Group. does. not. recommend. any.new.policies.with.respect.to.Service.members’.religious.practices;.however,. the.Department.of.Defense.and.the.Services.should.continue.to.educate.Service. members.on.these.policies.... . The.Service.should.reiterate.the.principle.that.chaplains,.in.the.context.of.their. religious. ministry,. are. not. required. to. take. actions. inconsistent. with. their. religious. beliefs,. but. must. continue. to. care. for. all. Service. members,. and. that. evaluation,.promotion,.and.assignment.of.chaplains.will.remain.consistent.with. these.long-standing.principles.

4. Equal Opportunity . The. Department. of. Defense. should. issue. guidance. on. the. prevention. of. discrimination,.harassment,.or.abuse.based.on.sexual.orientation,.to.include.the. following: . Sexual.orientation.may.not,.in.and.of.itself,.be.a.factor.in.accession,.promotion,. or.other.personnel.decision-making. . Gay.and.lesbian.Service.members,.like.all.Service.members,.shall.be.evaluated. only.on.individual.merit,.fitness,.and.capability... . Harassment.or.abuse.based.on.sexual.orientation.is.unacceptable. . All. Service. members. are. to. treat. one. another. with. dignity. and. respect. regardless.of.sexual.orientation. . The. Department. of. Defense. and. the. Services. should. issue. appropriate. policy. guidance. reaffirming. DoD’s. commitment. to. promoting. “an. environment. free. from. personal,. social,. or. institutional. barriers. that. prevent. Service. members. from. rising. to. the. highest. level. of. responsibility. possible”. and. prohibiting. the. evaluation. of. Service. members. on. bases. other. than. “individual. merit,. fitness,. and.capability,”.within.the.confines.of.the.law.and.existing.DoD.policy... . Execute.new.training.requirements.to.include.updates.to.existing.MEO.training,. Prevention.of.Sexual.Harassment.(POSH).training,.UCMJ.training.under.UCMJ. Article.137,.complaint.procedures.under.UCMJ.Article.138,.and.Sexual.Assault. Response.Coordinator.(SARC).training.

31

 . Services. should. review. and. update. existing. Service. MEO. programs. to. ensure. that.they.are.consistent.with.the.updated.DoD.program...Consider:.. . Means.of.referring.complaints.of.discrimination/harassment.based.on.sexual. orientation.to.leadership,.to.include.level.of.commander.discretion.to.either. initiate. investigation. (command. investigation,. IG. investigation). or. resolve. without.an.investigation.using.techniques.of.conflict.resolution.. . Methods.to.refer.complaints.of.harassment.to.military.law.enforcement.for. criminal.investigation,.where.appropriate. . Use. of. existing. MEO. resources. to. investigate. complaints. that. allege. samesex.harassment.or.“sex.stereotyping”.as.opposed.to.discrimination.based.on. sexual.orientation... . Commanding.Officers.should.be.trained.on.the.possible.implications.for.failing.to. take.action.on.complaints.that.allege.discrimination.based.on.sexual.orientation.. .

5. Collection and Retention of Sexual Orientation Data . The.Working.Group.recommends.no.new.policies..The.Department.of.Defense. and. the. Services. should. continue. their. policy. against. collecting. or. retaining. information.on.Service.members’.sexual.orientation...

6. UCMJ . The. Department. of. Defense. should. proceed. with. the. Joint. Service. Committee. (JSC).proposals.to.seek.repeal.of.Article.125.of.the.UCMJ.in.its.entirety.and.to. amend.Article.120.of.the.UCMJ.to.include.forcible.sodomy.and.sodomy.offenses. against.children..The.Department.of.Defense.should.also.proceed.with.the.JSC’s. related.proposal.to.amend.the.Manual for Courts-Martial.(MCM).to.include.other. aspects.of.Article.125.not.barred.by.Federal.court.decisions.(e.g.,.sodomy.that.is. Service.discrediting).in.the.punitive.offenses.section.of.the.MCM.under.Article. 134... . JSC.should.continue.to.review.all.other.UCMJ.offenses.involving.sexual.conduct. or.inappropriate.relationships.to.ensure.sexual.orientation-neutral.application,. and.take.actions.as.appropriate. . Update.MCM.training.materials.as.necessary....

7. Privacy and Cohabitation . The.Department.of.Defense.should.issue.guidance.prohibiting.berthing.or.billeting. assignments.being.based.on.sexual.orientation,.except.that.commanders.retain. the.authority.to.alter.berthing.or.billeting.assignments.on.an.individualized,.caseby-case.basis,.in.the.interest.of.maintaining.morale,.good.order,.and.discipline,. consistent.with.performance.of.mission.

32

 . The. Department. of. Defense. should. issue. guidance. prohibiting. the. designation. of. separate. bathroom. or. bathing. facilities. based. on. sexual. orientation. except. that. commanders. have. the. authority. to. accommodate. privacy. requests. on. an. individualized,. case-by-case. basis,. in. the. interest. of. maintaining. morale,. good. order,.and.discipline,.consistent.with.performance.of.mission.

8. Benefits . Where.it.is.permissible.to.do.so.under.existing.statutory.definitions.and.where. justified. by. policy,. fiscal,. and. feasibility. considerations,. the. Department. of. Defense. should. redefine. the. eligibility. for. benefits. and/or. support. resources. to. allow.Service.members.to.designate.a.beneficiary.or.supporter.of.their.choosing.. . (See.“Benefits”.in.section.III.) . The.Department.of.Defense.and.Services.should.continue.to.study.extension.of. benefits.in.accordance.with.the.law. . The. Department. of. Defense. should. provide. clear. guidance. on. benefits. to. all. Service. members. so. they. have. the. information. needed. to. properly. designate. beneficiaries.for.relevant.benefits,.including.notification.to.appropriate.family.or. support.persons.in.the.event.the.member.dies.or.is.missing.

9. Duty Assignments . The. Department. of. Defense. and. Services. should. develop. and. implement. the. appropriate.guidance.on.lawful.and.unlawful.behaviors.for.individual.countries. for. pre-departure. briefings. when. Service. members. are. traveling. to. OCONUS. assignments.... . The. Services. should. make. voluntary. counseling. available. to. gay. and. lesbian. Service. members. on. issues. relating. to. same-sex. partnerships. and. family. relationships.in.various.U.S..jurisdictions.and.foreign.countries.

10.

Accessions and Recruiting Policy

. The. Department. of. Defense. and. the. Services. should. ensure. that. recruiters,. Military. Entrance. Processing. Command. personnel,. Service. Academy. Liaison. Officers. and. other. accessions. and. recruiting. personnel. understand. accessions. and. recruiting. policies. as. described. in. “Accessions. and. Recruiting. Policy”. in. section.III...

11.

Release from Service Commitments

. Services. should. communicate. to. the. force. that. no. new. procedures. will. be. developed. for. the. early. separation. of. Service. members. based. on. opposition. to. repeal.or.to.serving.and.living.with.gay.and.lesbian.Service.members...Service. members.may.request.to.be.voluntarily.discharged.under.the.Military.Department. Secretary’s.plenary.authority,.which.will.be.granted.only.when.the.Secretary.has. determined.the.early.separation.would.be.in.the.best.interest.of.the.Service....

33

12. Family Readiness . Publish.and.distribute.printed.materials.on.repeal.to.family.support.organizations,. counseling. centers,. pediatric. clinics,. family. practice. clinics,. and. other. areas. frequented.by.military.families. . Publish.information.for.families.on.appropriate.websites.(e.g.,.MiltaryOneSource. com).and.social.media.sites.(e.g.,.Facebook.com). . Ensure. family. support. staff,. including. counselors. and. military. chaplains,. are. prepared.to.assist.Service.members.and.their.families.in.discussing.issues.related. to.repeal...

13. Re-Accession . Services. review. and. publish. regulations. pertaining. to. Service. Boards. for. Correction.of.Military.Records.and.Discharge.Review.Boards.as.required. . Services,. in. consultation. with. OUSD(P&R),. issue. guidance. to. their. military. personnel. commands. detailing. necessary. changes. to. separation. codes. to. be. executed.promptly... . Services.should.develop.a.communication.plan.to.inform.former.Service.members. about.the.Department.of.Defense.and.Service.policies.regarding.re-accession,.as. well.as.separation.and.reentry.codes...This.plan.should.include.communications. to.the.public.to.assist.previously.separated.Service.members,.whose.records.were. completed.using.pre-repeal.codes.

14. Follow-On Review . Identify.new.or.existing.review.and.monitoring.processes.(see.Appendix.E).that. the.Department.of.Defense.and.the.Services.can.use.to.collect.appropriate.data. to.analyze.success.in.implementing.repeal... . Establish. a. program. of. ongoing. review. of. the. implementation. of. repeal,. to. include.reviewing.and.updating.policy.related.to.same-sex.partner.benefits.when. appropriate.

B. Implementation Communication The.senior.leader.communication.announcing.the.change.in.policy.should.be.clear. and. candid.. . All. communications. should. capture. the. broader. strategic. vision. and. be. grounded.in.professional.military.values.such.as.respect,.integrity,.and.service...Leaders. at.all.levels.of.the.chain.of.command.must.deliver.consistent.messages.about.the.change. in.policy...Recommended.talking.points.for.leaders.are.provided.in.Appendix.A.to.assist. in.developing.and.delivering.the.message...Tools.for.leaders.and.Service.members.such. as.the.Leadership.Implementation.Guide.(see.Appendix.C).and.the.FAQs.and.vignettes. (see.Appendix.D).should.also.be.disseminated.quickly.to.provide.accurate.information. about.the.change.as.soon.as.practical...

34

The. Department. of. Defense. should. develop. and. execute. an. overarching. communications.plan.that.delivers.a.consistent.message.tailored.to.the.wide.range.of. interested. parties.. . Interested. parties. will. include. uniformed. Service. members. (both. active.and.reserve),.DoD.civilians,.family.members,.retirees.and.veterans,.Veteran.Service. organizations,.advocacy.groups,.and.potential.recruits...Central.to.this.communications. plan.will.be.the.vision.and.a.statement.from.senior.leaders.explaining.the.rationale.for. repeal.and.the.related.policy.changes. Behaviors, not attitudes..Part.of.the.communicated.message.should.be.a.focus. on.behaviors.rather.than.private.attitudes,.which.will.help.promote.unit.cohesion.and. military.effectiveness.in.environments.of.diverse.opinions... The.Working.Group.recognizes.that.some.Service.members.object.to.the.repeal. of.Don’t.Ask,.Don’t.Tell.on.religious.or.moral.grounds...The.Department.of.Defense.and. the.Services.should.emphasize.that.no.Service.member.is.being.asked.to.change.his.or. her.personal.beliefs.as.a.result.of.repeal.of.Don’t.Ask,.Don’t.Tell...The.United.States.is. characterized.by.great.diversity.of.religious.and.spiritual.practices;.it.follows.that.there. is.diversity.of.opinion.on.homosexuality...Focusing.on.behaviors.not.attitudes.will.allow. for.this.diversity.of.personal.opinion.while.also.leading.to.the.most.successful.and.least. disruptive.implementation.of.policy.change...... Military. leaders. must. lead. all. members. without. prejudice. regardless. of. their. religious.or.personal.conviction,.and.Service.members.are.expected.to.act.professionally. at. all. times. even. when. they. strongly. disagree. with. another. Service. member’s. beliefs. or. sexual. orientation.. . All. personnel. are. subject. to. uniform. standards. of. conduct. as. published.by.their.Service.and.their.Commands...Harassment.and.discrimination.will. not.be.tolerated.. C. Provide Implementation Education and Training As. discussed. in. the. previous. section,. Services. should. provide. specialty. (Tier. 1). and.leadership.(Tier.2).training.as.early.as.practical.in.the.implementation.stage,.after. the.development.of.policies.9...Tier.3.training.for.all.members.of.the.force.should.occur. as.soon.as.practical.after.leadership.is.trained.on.the.new.policies.. It.is.important.that.leaders.and.specialists.be.the.first.to.be.trained.so.the.force.will. receive.a.consistent.and.accurate.message.about.repeal....Methods.of.training.delivery. are.left.to.the.discretion.of.the.individual.Service.training.commands... Education and Training for Deployed Forces. The. U.S.. military. has. forces. deployed. worldwide. in.a.variety.of.high. stress. assignments. such.as.battlefields. in.the. CENTCOM. AOR,. Training. Teams. in. South. America. and. Africa,. and. U.S.. Embassy. Guards...Training.and.education.for.deployed.forces.must.not.in.any.way.impede.the. operations. of. forces. directly. engaged. with. the. enemy.. . When. training. is. delivered. to.
9. .See.Appendix.B.for.the.Working.Group.recommended.training.framework.

35

deployed. forces,. it. must. be. concisely. written. and. efficiently. delivered.. . Commanders. ensure.minimum.disruption.by.keeping.the.training.requirement.for.all.Service.members. simple,.and.this.requirement.is.even.more.critical.the.closer.the.Service.member.is.to. the.fight... Commanders. should. become. familiar. with. the. information. in. the. Leadership. Implementation.Guide,.FAQs,.and.vignettes.as.they.apply.to.deployed.troops....Information. that.is.applicable.only.to.garrison.settings,.such.as.base.housing.assignments,.should.be. omitted.from.training.until.the.force.returns.to.a.garrison.setting...The.Services.should. include. a. training. session. on. omitted. information. when. deployed. Service. members. return.to.garrison... Combatant.commanders.must.ensure.that.Service.members.have.the.information. from.their.chain.of.command.before.hearing.about.it.on.the.news.or.other.social.and. media. outlets.. . Leaders. should. use. the. Leadership. Implementation. Guide,. FAQs,. and. vignettes.to.prepare.their.message.to.the.troops...At.a.minimum,.all.Service.members. must.understand.the.expectations.for.exemplary.conduct.and.the.key.elements.of.the. policy.change...(See.the.Tier.3.training.requirements.in.Appendix.B.)..The.best.place.to. start.with.the.expectations.for.exemplary.conduct.is.to.emphasize.the.key.implementation. themes.of.Leadership-Professionalism-Respect... The. key. elements. to. be. communicated. to. deployed. Service. members. should. include.the.following: . The.Department.of.Defense.will.no.longer.separate.service.members.solely.for. engaging.in.homosexual.conduct. . The. Department. of. Defense. will. not. require. anyone. to. disclose. their. sexual. orientation. . Local.commanders.are.authorized.to.determine.potential.privacy.requirements. and.accommodations.based.on.mission.and.supportability... . All.Service.members.are.expected.to.conduct.themselves.in.a.professional.manner. that.maintains.good.order.and.discipline.within.the.force. . All. Service. members. will. treat. each. other. with. dignity. and. respect. in. keeping. with.Service.core.values. . Leaders.at.all.levels.will.comply.with.this.change.in.policy.and.establish.a.climate. that.fosters.tolerance.and.respect.of.all.individuals.within.their.command.. . Any. issues. or. questions. about. the. policy. change. should. be. handled. through. respective.Service.member’s.chain.of.command. . Harassment.or.violence.towards.another.Service.member.will.not.be.tolerated. and.will.be.swiftly.and.appropriately.dealt.with.

36

Finally,.when.units.return.to.their.forward.operating.base.and.have.an.opportunity. to.further.consider.the.change.in.DoD.policy,.front.line.leaders.must.proactively.address. issues. and. concerns. with. their. troops. as. soon. as. they. are. able.. . Leaders. must. be. comfortable.with.the.information.in.the.FAQs.and.vignettes.in.order.to.discuss.concerns. of.their.troops.when.behind.the.wire.and.have.free.time.on.their.hands...The.most.likely. place.for.incidents.of.harassment.and.abuse.is.when.Service.members.have.disengaged. from.combat.operations.and.have.the.free.time.to.process.and.discuss.the.new.policy.. . Maintaining.good.order.and.discipline.will.require.leaders.to.support.the.new.policy.in. their.actions.and.words,.fairly.enforce.orientation-neutral.standards.of.conduct,.and.be. role.models.of.leadership,.professionalism,.and.respect. D. Emphasize Key Implementation Message The. Working. Group. has. identified. the. key. implementation. message. for. implementation.as.Leadership-Professionalism-Respect...Each.of.those.three.elements. is.examined.in.greater.detail.here: 1.. Leadership matters most..The.message.“leadership.matters.most”.has.been. repeated.throughout.this.Support.Plan.because.the.Working.Group’s.research. indicates.that.this.is.the.most.critical.predictor.of.successful.implementation.. . Without.strong.leadership,.the.views.of.a.vocal.minority.could.negatively.impact. cohesion,. readiness,. and,. ultimately,. the. effectiveness. of. a. given. unit.10. This. research.clearly.indicates.that.the.best.mitigator.for.potential.problems.postrepeal.is.the.frontline.leader...For.the.past.17.years.under.Don’t.Ask,.Don’t.Tell,. leaders.have.successfully.led.Service.members.with.widely.divergent.opinions. on.gay.and.lesbian.military.service...After.repeal,.leaders.will.continue.to.lead. Service.members.with.widely.divergent.opinions.on.gay.and.lesbian.military. service...The.policy.will.have.changed,.but.the.leadership.challenges.will.remain. the.same:..the.leader’s.task.is.to.build.unit.cohesion.and.maintain.readiness. in.a.diverse.force.so.the.unit.is.able.to.accomplish.the.mission.effectively...By. providing.leaders.at.all.levels.with.accurate.information.and.the.appropriate. authority.to.carry.out.the.mission,.we.enhance.our.ability.to.assure.a.smooth. transition.with.minimal.disruption.to.the.force..... 2..Focus on professionalism.. The. American. military. mirrors. the. diversity. of.the.broader.United.States.in.many.respects...As.such,.the.force.will.have. diverse.opinions.on.complex.social.issues...Nonetheless,.all.Service.members. have. taken. oaths. as. military. professionals. to. support. and. defend. the. U.S.. Constitution,. and. have. made. a. commitment. to. their. Service’s. core. values.. Emphasizing.these.professional.obligations.in.a.post-repeal.environment.will. reinforce.behavior.that.helps.a.unit.accomplish.its.mission,.thereby.reducing. any.impact.a.policy.change.may.have.on.military.effectiveness....
10. . For. further. information. on. this. issue,. see. the. USAFA. White. Paper,. p.18,. which. discusses. the. concept. of. pluralistic.ignorance—a.situation.where.fear.of.judgment.and.the.passionate.expression.of.a.minority.opinion. suppresses.opposing.views...This.can.lead.to.a.false.perception.that.a.minority.perspective.is.the.norm.in.the. community—particularly.where.there.is.an.emotional.component.to.the.view,.as.is.frequently.the.case.with. views.on.gay.and.lesbian.military.service..

37

3.. Promote strength through respect.. Each. Service. should. capitalize. on. the. strengths.of.their.values.and.traditions.as.the.foundation.for.maintaining.the. strength.of.our.force...An.important.aspect.of.that.strength.is.respect.for.the. dignity.of.all.people...Even.where.a.Service.member.may.personally.object.to. another.Service.member’s.sexual.orientation,.the.Service.member.is.expected. to.treat.that.person.with.respect...Service.leaders.should.emphasize.the.value. of.every.member.of.the.team..

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V

SUSTAINMENT STAGE

The. sustainment. stage. would. begin. at. some. point. after. the. new. policies. have. been. put. into. effect,. and. would. be. ongoing.. . The. sustainment. stage. would. involve. follow-on.review.and.ongoing.monitoring.of.implementation.of.repeal,.in.order.to.make. adjustments.to.implementation.based.on.the.experiences.of.the.Department.of.Defense. . and.the.Services.to.that.point.. Successful. sustainment. of. a. repeal. of. Don’t. Ask,. Don’t. Tell. depends. upon. continued. leadership. support. and. responsiveness. to. the. results. of. monitoring. efforts.. . The. Department. of. Defense. and. Service. implementation. plans. must. continue. to. provide. leaders. and. Service. members. with. the. information. and. support. they. need. to. continue.to.implement.repeal.effectively...The.Department.of.Defense.should.devise.and. employ. appropriate. monitoring. mechanisms. that. will. identify. key. metrics. measuring. implementation.success.in.policy.areas.of.concern,.collect.sufficient.data.for.meaningful. analysis. at. regular. intervals,. and. determine. and. make. appropriate. adjustments. to. implementation..

Sustainment Overview
To.accomplish.an.effective.program.of.sustainment.and.analysis,.the.Department. of.Defense.and.the.Services.should: A..Identify.and.monitor.policies.and.regulations.in.those.areas.that.will.be.the. greatest.barometers.of.implementation.success. B..Devise.and.employ.a.follow-on.review.strategy.that.will.help.OUSD(P&R).and. the.Services.adapt.and.refine.the.policies.and.training.approaches.for.greater. implementation.success. C..Adapt.education.and.training.tools.to.better.implement.repeal.and.continue.to. reduce.potential.impact.to.unit.cohesion,.effectiveness,.and.readiness...

Sustainment Analysis
A. Legal, Policy, and Regulatory Monitoring The.Department.of.Defense.and.the.Services.should.monitor.and.evaluate.the.success. of.all.the.policy.and.regulatory.changes.identified.in.previous.sections.of.this.Support.Plan;. they.are.not.all.listed.here...A.small.number.of.policies,.however,.would.require.additional. specific.sustainment.action.to.continue.facilitating.a.repeal.with.minimal.disruption.to.the. force...Those.policies.and.the.related.additional.actions.are.as.follows:..

39

1. Equal Opportunity The. Department. of. Defense. and. the. Services. should. seek. input. from. leaders.to.assess.whether.the.DoD.MEO.policy.has.been.successful.in.handling. complaints.based.on.sexual.orientation.as.follows: . The.Department.of.Defense.and.the.Services.should.collect.data.to.determine.the. number. of. cases. involving. sexual. orientation. that. have. been. filed/adjudicated.. . These. cases. would. include. military. justice,. complaints. of. wrongdoing. filed. under. UCMJ. Article. 138,. IG. investigations,. and. complaints. submitted. (but. not. actionable).under.MEO.policy. . The. Department. of. Defense. and. Service. legal. communities. should. monitor. legislation.and.Federal.case.law.regarding.sexual.orientation,.sex.stereotyping,. and.related.issues,.and.modify.or.update.policies.accordingly.. . The.Department.of.Defense.and.the.Services.should.survey.the.force.to.measure. reactions. to. additions. to. the. MEO. training. to. determine. whether. the. training. needs.modification.. . At.some.time.interval.after.repeal,.the.Department.of.Defense.and.the.Services. should. assess. whether. DoD. policy. on. sexual. orientation-based. complaints. is. consistent.with.any.changes.in.legislation.and/or.Federal.case.law.

2. UCMJ At. an. interval. determined. by. OUSD(P&R),. the. Department. of. Defense. should.request.feedback.from.the.Service.military.justice.legal.communities.to. determine.whether.additional.changes.to.the.MCM.or.UCMJ.should.be.made.to. facilitate.the.most.effective.administration.of.justice.post-repeal...The.Services. should.review.the.data.collected.regarding.the.number.of.cases.involving.sexual. orientation. (e.g.,. hate. crimes,. harassment),. to. determine. whether. the. force. requires.additional.training.to.decrease.the.frequency.of.such.behaviors...The. Service.legal.communities.should.monitor.Federal.statutes.and.case.law.for.any. changes.concerning.crimes.committed.against.or.involving.gays.and.lesbians.. . This.information.should.be.relayed.to.the.Department.of.Defense.so.that,.where. appropriate,.recommendations.can.be.made.for.changes.to.the.MCM.and.UCMJ.. . 3. Privacy and Cohabitation Services. retain. the. discretion—as. budgetary. constraints. and. mission. needs. permit—to. modify. facilities. to. provide. one. or. more. private. showering/ changing. areas. consistent. with. current. DoD. design. guidance.. . Small. modifications. to. improve. privacy,. such. as. installing. privacy. curtains. where. feasible,.can.be.accomplished.at.the.unit.level.with.little.impact.on.the.force.. . As.in.civilian.society,.there.will.be.locations,.either.at.the.fitness.facility.or.in. the. field,. where. privacy. will. be. minimal.. . Members. of. the. Military. Services. must. understand. that. the. mission. frequently. demands. operations. in. austere. conditions.where.privacy.is.not.a.concern.to.operational.planning..

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As. with. shower. and. bathroom. facilities,. the. Working. Group. does. not. recommend.any.new.construction.or.modifications.to.facilities.beyond.low-cost,. unit-funded. adaptations. where. appropriate.. . Existing. design. criteria. are. adequate.to.support.most.billeting.and.berthing.concerns.in.the.the.Department. of.Defense...DoD.Unified.Facilities.Criteria.(UFC).require.that.all.new.permanent. party.unaccompanied.housing.be.designed.to.afford.members.private.bedrooms. and.bathrooms.shared.by.not.more.than.one.person.(the.“1+1”.standard)...DoD. UFC.will.remain.in.effect.regardless.of.repeal.of.10.U.S.C.§.654,.as.will.existing. Service.waivers.or.exceptions.and.Services’.ability.to.apply.for.such.waivers.and. exceptions...The.continued.construction.of.unaccompanied.housing.facilities.in. accordance. with. the. 1+1.standard,. subject. to. Service. waivers. and.exceptions,. will,. over. time,. provide. greater. personal. privacy. to. Service. members. as. budgetary.constraints.and.mission.needs.permit...Regardless.of.the.availability. of.individual.bedrooms.for.Service.members,.such.construction.would.not.affect. berthing.or.billeting.in.deployed.or.shipboard.environments... 4. Benefits OUSD(P&R). should. revisit. the. issue. of. benefits. eligibility. again. in. the. future,. specifically. during. the. designated. follow-on. review,. and. perhaps. periodically.after.that,.as.the.national.debate.on.same-sex.marriage.and.partner. benefits. is. ongoing. and. the. judicial. and. legislative. landscape. is. in. a. state. of. flux...During.this.review,.depending.in.part.on.the.degree.to.which.the.external. landscape.may.have.changed,.the.Department.of.Defense.may.consider.creating. a.“qualifying.relationship”.status.for.same-sex.relationships,.or.for.both.same-sex. and. unmarried. opposite-sex. relationships,. if. the. experience. of. repeal. to. that. point.indicates.that.the.extension.of.benefits.in.this.manner.would.be.desirable. To. ffectively. mplement. epeal,. he. epartment. f. efense. ust. ontinually. e i r t D o D m c monitor.and.evaluate.changes.to.the.law.throughout.the.implementation.process.. . The.Department.of.Defense.should.be.especially.attentive.to.changes.in.law.that. could.trigger.swift.and.unexpected.changes.in.benefit.eligibility.for.all.Service. members.and.their.families. Legislative.changes.could.occur.at.the.Federal.or.state.level,.with.Federal. changes. likely. to. have. a. more. immediate. impact. on. the. expansion. of. benefit. entitlements.than.would.be.the.case.for.changes.at.the.state.level...For.example,. . changes. to,. or. repeal. of,. the. Defense. of. Marriage. Act. (DOMA),. 1. U.S.C.. §. 7,. and.similar.laws,.would.change.the.legal.and.regulatory.definition.of.“spouse”. upon.which.the.Department.of.Defense.and.Services.currently.rely.to.determine. eligibility.. . . Likewise,. Federal. legislation. redefining. “dependent”. to. include. a. same-sex.partner,.or.child.of.a.same-sex.partner,.would.broaden.benefit.eligibility.. . 5. Family Readiness Readiness.of.Service.members’.families.has.a.direct.impact.on.the.overall. military. readiness. of. the. force.. . As. such,. in. the. event. of. repeal,. the. Working.

41

Group.recommends.that.OUSD(P&R).engage.with.Service.family.members.on.a. regular.basis.to.reassess.their.readiness.as.part.of.ongoing.sustainment.efforts.. . OUSD(P&R). should. address,. at. minimum,. the. three. major. subcategories. of. family.readiness:.mobilization.and.deployment.readiness.(deployment);.mobility. and.economic.readiness.(relocation/PCS);.and.personal.and.family.life.readiness. (garrison).. . Further,. OUSD(P&R). should. develop. and. employ. the. appropriate. tools.to.gather.data.directly.from.the.force.and.also.from.the.various.Service. support.centers.catering.to.families’.needs...OUSD(P&R).should.work.with.the. Services.to.assess.and,.where.needed,.improve.family.engagement.initiatives.that. facilitate.the.transition.from.an.environment.in.which.gay.and.lesbian.family. matters.have.not.been.contemplated.to.an.environment.in.which.they.are.. B. Devise and Employ Follow-On Review Strategy 1. Monitoring and Assessment .The.Department.of.Defense.and.the.Services.should.consider.using.exit. surveys.to.assess.Service.member.reasons.for.separating.from.the.military.and. be. able. to. measure. success. of. implementation. and. any. attendant. changes. in. retention...Tracking.and.monitoring.the.number.of.reentry.applications.submitted. by.former.Service.members.discharged.under.Don’t.Ask,.Don’t.Tell.is.another. means. of. evaluating. success. in. communicating. the. change. to. former. Service. members.and.the.public..The.Department.of.Defense.and.the.Services.should. utilize.existing.surveys.and.assessments.already.developed.across.the.Services. to.monitor.implementation.of.repeal.on.an.ongoing.basis...(See.Appendix.E.) 2. Fiscal Impact OUSD(P&R). and. the. Services. should,. in. conjunction. with. standard. budgetary. analysis. and. management. procedures,. track. any. costs. directly. attributable.to.repeal.of.Don’t.Ask,.Don’t.Tell...Services.should.also.account.for. those.costs.in.budget.projections.for.future.fiscal.years...Such.costs.might.include. benefits. adjusted. so. that. all. Service. members. may. designate. a. beneficiary. of. their.choosing.regardless.of.relationship....... C. Adapt Education and Training Education.and.training.programs.will.also.need.to.adapt.to.the.changing.landscape. of.the.public.debate.over.gay.rights...The.first.several.years.after.repeal.may.produce. adjustments.to.policies.and.regulations.based.on.legislative.and.legal.changes.that.may. occur...The.Department.of.Defense.and.the.Services.should.posture.themselves.so.that. they.do.not.have.to.react.without.preparation.to.new.laws,.judicial.rulings,.or.executive. directives.. . Similar. to. the. contingent. nature. of. this. support. plan,. the. Department. of. Defense. and. the. Services. should. continue. with. a. contingency. planning. process. that. anticipates.future.changes.and.prepares.appropriate.education.and.training.programs.. .

42

Senior.leaders.should.also.continue.to.engage.the.force,.both.to.monitor.implementation. and.continue.to.reinforce.the.key.implementation.message...

Summary
OUSD(P&R).and.the.Services.should.engage.in.a.systematic.sustainment.effort. by.collecting.data,.analyzing.trends,.and.making.policy.adjustments.as.needed.to.better. implement.repeal.of.Don’t.Ask,.Don’t.Tell...Each.of.the.policy.areas.of.concern.discussed. in.sections.III.and.IV.of.this.Support.Plan.should,.at.least.initially,.be.monitored.as.part. of.the.sustainment.effort,.and.amended.as.needed.

43

44

A PPEN D I X

A

RECOMMENDED TALKING POINTS

Background: If Congress repeals 10 U.S.C. § 654, commonly known as “Don’t Ask, Don’t Tell,” then Service members must be informed of repeal, how it occurred, and new policies and practices. . During.the.January.2010.State.of.the.Union.address,.the.President.called.on.Congress. to.repeal.10.U.S.C..§.654.. . In.support.of.the.President,.on.March.2,.2010,.the.Secretary.of.Defense.established.an. intra-Department,.inter-Service.working.group.to.conduct.a.comprehensive.review. of.the.issues.associated.with.a.repeal.of.Don’t.Ask,.Don’t.Tell.. . The.review.was.completed.on.November.30,.2010,.and.assessed.and.considered.the. impacts.a.change.in.the.law.might.have.on.military.readiness,.military.effectiveness,. unit.cohesion,.retention,.recruiting,.and.family.readiness,.and.how.to.best.manage. any.such.impacts.during.implementation..

The New Policy: Service members will no longer be discharged for engaging in homosexual conduct. This includes homosexual acts; statements that they are gay, lesbian, or bisexual; or marriage to someone of the same sex. . Sexual.orientation.remains.a.personal.and.private.matter.. . It.remains.the.policy.of.the.Department.of.Defense.to.evaluate.all.Service.members. on.the.basis.of.their.individual.merit,.fitness,.and.capability.... . Sexual.orientation.may.not,.in.and.of.itself,.be.a.factor.in.accession,.promotion,.or. other.personnel.decision-making.. . This. policy. change. recognizes. that. the. most. valuable. component. of. our. national. defense.is.the.men.and.women.in.uniform.who.make.up.America’s.all-volunteer.force.. . . Our.military.remains.a.lethal.and.professional.fighting.force...Fidelity.in.our.values. and.our.culture.of.mutual.respect.and.obedience.to.orders.provides.the.foundation. for. the. superior. strength. of. the. U.S.. military.. . The. hallmark. of. military. culture. is. professionalism:..our.laws,.rules,.customs,.and.traditions.require.adherence.to.high. standards.of.personal.and.professional.conduct.to.ensure.mission.accomplishment.

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Details Regarding the New Policy: Regardless of sexual orientation, we will continue to hold Service members to the same high standards of conduct. . Applicants.for.military.service.will.not.be.asked.or.required.to.reveal.their.sexual. orientation...... . Service. members. will. not. be. involuntarily. separated. for. lawful,. consensual. homosexual.acts;.a.statement.by.a.Service.member.that.he.or.she.is.a.homosexual. or.bisexual,.or.words.to.that.effect;.or.marriage.or.attempted.marriage.to.a.person. known.to.be.the.same.biological.sex. . The.Department.of.Defense.is.committed.to.maintaining.an.environment.that.is.free. from.personal,.social,.or.institutional.barriers.that.prevent.Service.members.from. rising.to.the.highest.level.of.responsibility.possible.. . The.UCMJ.remains.the.legal.foundation.of.good.order.and.discipline.in.the.Military. Services.and.is.the.vehicle.for.enforcement.of.proper.conduct...

Key Messages For Our Leaders: In accordance with our mission to fight and win our nation’s wars, our military will foster a climate of mutual respect consistent with our standards of professional conduct and core values. . A. clear. focus. on. Leadership-Professionalism-Respect. will. enable. this. change. in. policy.to.be.executed.with.minimal.disruption.to.our.already.combat-stressed.force. . Commanders. and. leaders. at. every. level. must. work. to. reinforce. the. importance. of. dignity. and. respect. for. all. Service. members.. We. promote. these. values. by. living. them,. and. reaffirm. our. commitments. to. enforcing. standards. of. conduct. and. the. expectations. for. a. military. culture. where. Service. members. are. valued. for. their. contributions.to.national.defense. . The.views.and.beliefs.of.those.who.are.opposed.to.“open”.service.by.gays.and.lesbians. on.well-founded.moral.or.religious.grounds.are.not.being.rejected,.and.leaders.have. not.turned.their.backs.on.them...We.do.not.expect.individual.Service.members.to. change. their. personal. religious. or. moral. beliefs. about. homosexuality,. but. we. do. expect.every.Service.member.to.treat.all.others.with.dignity.and.respect,.consistent. with.the.core.values.that.already.exist.in.each.Service... . Commanders. remain. responsible. for. maintaining. good. order. and. discipline.. . Harassment.or.violence.among.Service.members.will.not.be.tolerated. . Leaders. reinforce. standards. of. conduct. and. expectations. for. exemplary. conduct. of. all. Service. members.. Commanders’. leadership. and. personal. commitment. to. implementation.must.be.visible.and.unequivocal... . Commanders.are.expected.to.communicate.standards.of.professional.conduct.and. build.on.their.Service.cultures.where.members.are.valued.for.their.contributions.and. performance,.respected,.and.treated.fairly.. . The.core.of.this.issue.is.allowing.all.qualified.citizens.to.serve.based.on.individual. merit,.fitness,.and.capability,.without.regard.to.sexual.orientation...

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A PPEN D I X

B

RECOMMENDED EDUCATION AND TRAINING FRAMEWORK

Education and Training Framework
The. intent. of. providing. an. Education. and. Training. Framework. is. to. assist. the. Services.in.developing.Service.member.knowledge.of.issues.related.to.repeal.based.on. their.subject.matter.needs,.rather.than.to.provide.a.checklist.of.topics.or.number.of.hours. of.instruction.required...As.a.starting.point.for.commanders,.leaders,.training.managers,. trainers,.and.those.being.trained,.the.framework.is.organized.by.tier.and.describes.the. target.audience,.learning.objectives,.and.training.guidance.for.each.policy.issue.topic.. . Education. and. training. guidance. at. Tiers. 1. and. 2. include. more. detailed. information. for. senior. leaders,. commanders,. and. personnel. responsible. for. implementation. that. expands.what.is.provided.to.all.Service.members.in.Tier.3...Tiers.1.and.2.are.designed.as. discretionary.education.requirements.based.on.the.needs.of.leaders.and.specialists.who. will.be.charged.with.leading.repeal.efforts...Tier.3.is.recommended.mandatory.education. and.training.of.all.personnel...The.Education.and.Training.Framework.provides.three. levels.of.understanding.for.the.following.categories.of.DoD.personnel:
Tier 1 (Expert Level).. . Material. targeted. toward. Service. members. responsible. for. administration.or.policy.implementation,.or.whose.occupation.specialty.requires.that. the.Service.member.needs.to.understand.the.implications.of.any.policy.change...At.a. minimum.this.includes:..judge.advocates.and.civilian.lawyers,.chaplains,.recruiters,. personnel. specialists,. military. law. enforcement. personnel,. military. criminal. investigators,.family.support.staff,.military.equal.opportunity.advisors,.and.health. services.personnel. Tier 2 (Leader Level).. . Material. targeted. toward. Service. members. in. leadership. positions.who.are.responsible.for.maintaining.standards.of.conduct,.good.order.and. discipline,.and.military.effectiveness...At.a.minimum.this.includes:..senior.leaders. (general/flag. officers. and. Senior. Executive. Service),. commanding. officers,. chief. warrant.officers,.senior.enlisted.advisors,.and.senior.non-commissioned.officers.and. chief.petty.officers,.and.civilian.supervisors. Tier 3 (Service Member Level)...Material.designed.for.all.members.of.the.Services,. to.be.distributed.as.soon.as.repeal.is.effective,.and.during.accessions.training.for.all. personnel...At.a.minimum,.all.Service.members.should.be.briefed.on.the.new.policy. and.expectations.of.personal.conduct.in.the.Military.Services.

Services.should.determine.appropriate.measures.of.effectiveness.for.each.training. area...This.appendix.provides.a.basis.for.the.content.Services.should.consider.in.their. education. and. training. lesson. plans.. . The. Services. are. responsible. for. education. and.

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training. program. delivery. to. support. implementation.. . This. framework. was. written. in. close. collaboration. with. OUSD(P&R),. and. while. it. anticipates. key. elements. of. a. successful. implementation,. it. should. be. acknowledged. that. this. issue. is. dynamic. and. subject.to.a.shifting.legal.and.legislative.landscape...OUSD(P&R).and.the.Services.may. need.to.deviate.from.some.of.the.recommendations.found.in.this.appendix.to.reflect.any. changes.in.policy.that.occur.after.the.Support.Plan.was.written.

Education and Training Principles
Based. on. the. Working. Group’s. engagements. with. the. force. and. research,. the. Working.Group.recommends.the.following.principles.when.the.Department.of.Defense. and.the.Services.are.creating.lesson.plans.to.support.repeal: . Develop.tools.so.leaders.at.all.levels.can.deliver.the.key.messages.to.the.force.as.much. as.possible...The.most.important.message.in.mitigating.potential.concerns.related.to. repeal.is:..leadership.matters.most. . Conduct.training.and.education.in.a.manner.that.minimizes.the.burden.on.the.force. to.ensure.military.mission.is.not.negatively.impacted:..keep.it.simple.. . Maximize.autonomy.of.the.Services.for.execution. . Embed.training.and.education.in.existing.programs.to.the.greatest.extent.possible. . Promote.sexual.orientation-neutral.execution.to.greatest.extent.possible.

Education and Training Guidance
The. framework. below. lays. out. a. statement. of. each. policy. topic. and. a. basic. explanation. of. education. and. training. on. that. policy.. . The. training. guidance. further. expands. the. basic. issue. and. how. it. should. be. approached. in. implementation.. Service. education.and.training.programs.should.impress.on.all.Service.members.the.importance. of.exemplary.conduct...This.framework.is.designed.to.assist.the.Services.in: . Achieving. and. maintaining. adequate. and. applicable. uniformity. of. education. and. training.requirements.in.support.of.the.implementation.of.repeal.. . Understanding.and.interpreting.standards.of.conduct.and.new.policies.for.all.tiers.of. training.(Tier.1.Expert.Level,.Tier.2.Leader.Level,.and.Tier.3.Service.Member.Level). . Achieving. consistency. across.implementation.of.education. and.training. programs,. mandatory.instructional.information,.and.discretionary.materials.

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 . Developing.instructional.material.related.to.implementation.of.repeal.in.a.manner. that.is.grounded.in.the.profession.of.arms.and.an.organizational.climate.of.dignity. and.respect.for.all.Service.members.

Learning Objectives
1. Topic: Standards of Conduct . Training.guidance:..Tiers.1.&.2.. . Services. will. conduct. a. review. of. existing. standards. to. ensure. that. they. provide. adequate. guidance. in. relevant. areas,. to. the. extent. the. Service. consider.appropriate,.and.that.they.apply.uniformly.without.regard.to.sexual. orientation...Services.will.place.special.emphasis.in.their.review.on.standards. for. personal. displays. of. affection,. dress. and. appearance,. unprofessional. relationships,.and.harassment. . Standards.shall.clearly.address.the.responsibility.of.leaders,.supervisors,.and. subordinate. personnel. at. all. levels. to. foster. unit. cohesion,. good. order. and. discipline,.respect.for.authority,.and.mission.accomplishment. . Leaders. at. all. levels. are. trusted. to. ensure. the. impartial. administration. of. these.standards...Service.members.will.be.held.accountable.without.regard. to. their. own,. or. another’s. sexual. orientation.. . In. cases. where. conduct. is. prohibited,.leaders.shall.be.expected.to.take.such.corrective.or.disciplinary. action. as. necessary. to. preserve. morale,. good. order. and. discipline,. unit. cohesion,.military.readiness,.and.combat.effectiveness. . Training.guidance:..Tier.3.... . Service.members.occupy.a.unique.position.in.society.and.represent.the.military. establishment...This.special.status.brings.with.it.a.responsibility.to.uphold.and. maintain.the.dignity.and.high.standards.of.the.Military.Services.at.all.times. and.in.all.places...Service.members.must.be.ready.at.all.times.for.worldwide. deployment.. . This. fact. carries. with. it. a. requirement. that. Service. members. possess. high. standards. of. morale,. good. order,. discipline,. and. cohesion.. . As. a. result,. military. laws,. rules,. customs,. and. traditions. include. restrictions. on. personal.behavior.that.may.be.different.from.civilian.life. . Standards.of.conduct.regulate.many.aspects.of.Service.members’.personal. lives.that.generally.are.not.regulated.in.civilian.society...The.unique.nature. of. military. service. requires. regulation. of. behavior. that. brings. discredit. on. the. Military. Services,. adversely. affects. good. order. and. discipline,. or. is. inconsistent.with.military.customs,.traditions,.and.decorum. . The.Uniform.Code.of.Military.Justice.remains.the.legal.foundation.of.good. order.and.discipline.in.the.Military.Services.and.is.the.vehicle.for.enforcement. of.Service.standards.of.conduct. . Service-specific.standards.of.personal.and.professional.conduct.shall.apply. uniformly.without.regard.to.sexual.orientation.

49

 . The.Uniform.Code.of.Military.Justice.remains.the.legal.standard.for.enforcing. proper. conduct,. to. include. existing. laws. against. harassment. or. violence. against.any.Service.member,.for.any.reason. . Violations.of.Service.standards.of.conduct.may.be.punished.as.violations.of. lawful.regulations,.orders,.or.derelictions.of.duty,.as.the.case.may.be,.under. the.Uniform.Code.of.Military.Justice. . Service. members. may. be. involuntarily. separated. prior. to. the. expiration. of. their. term. of. service. for. various. reasons. established. by. law. and. military. regulations,.to.include.violations.of.Service.standards.of.conduct.

2. Topic: Moral and Religions Concerns (Chaplains) . Training.guidance:..Tiers.1.&.2... . Chaplains.facilitate.the.free.exercise.of.religion.for.all.personnel,.regardless. of.religious.affiliation.of.either.the.chaplain.or.the.individual... . Chaplains,.in.the.context.of.their.religious.ministry,.are.not.required.to.take. actions. that. are. inconsistent. with. their. religious. beliefs.. . Existing. policy. regarding.chaplains’.free.exercise.of.religion.and.duty.to.care.for.all.continues. to.apply... . Evaluation,. promotion,. and. assignment. of. chaplains. will. continue. to. be. consistent.with.these.long-standing.Service.policies.

3. Topic: Moral and Religions Concerns (Service Members) . Training.guidance:..Tiers.1.&.2... . Existing.policies.regarding.Service.members’.freedom.of.expression.and.free. exercise.of.religion.continue.to.apply. . Service.members.can.continue.to.freely.practice.their.religion,.being.aware. of.the.expectations.set.forth.by.the.UCMJ.and.appropriate.Service.standards. of.conduct. . Service.members.are.not.expected.to.change.their.personal.religious.or.moral. beliefs;.however,.they.are.expected.to.treat.all.others.with.dignity.and.respect,. consistent.with.the.core.values.that.already.exist.within.each.Service. . Service. members. do.not. have.the. right. to.refuse. duty. or.duty.assignments. based.on.a.moral.objection.to.another’s.sexual.orientation. . Service.members.remain.obligated.to.follow.orders.that.involve.interaction. with.others.who.are.gay.or.lesbian,.even.if.an.unwillingness.to.do.so.is.based. on. strong,. sincerely. held,. moral. or. religious. beliefs.. . As. expressed. in. the. Manual for Courts-Martial.regarding.a.Service.member’s.obligation.to.obey.

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orders:..“the.dictates.of.a.person’s.conscience,.religion,.or.personal.philosophy. cannot.justify.or.excuse.the.disobedience.of.an.otherwise.lawful.order.”. . Ser v ice. members. may,. in. appropr iate. circumsta nces. . a nd. w ithin. the. limitations. of. law. and. policy,. express. their. moral. or. religious. beliefs. regarding. sexual. orientation.. However,. Service. members. may. not. make. statements. detrimental. to. good. order. and. discipline. and. must. obey. lawful. orders.. Service. members. who. feel. that. their. religious. beliefs. regarding. homosexuality. require. religious. accommodation,. may. request. such. accommodation.of.that.belief.under.DoDI.1300.17.

4. Topic: Equal Opportunity . Training.guidance:..Tiers.1,.2.&.3... . Sexual.orientation.is.not.specified.as.a.class.eligible.for.the.MEO.complaint. resolution.process. . Gay. and. lesbian. Service. members. are. . treated. under. . the. same. general. . principles.of.military.equal.opportunity.policy.to.“promote.an.environment. free. from. personal,. social,. or. institutional. barriers. that. prevent. Service. members.from.rising.to.the.highest.level.of.responsibility.possible”.and.Service. members.are.evaluated.“only.on.individual.merit,.fitness,.and.capability.”.. . Sexual.orientation.may.not,.in.and.of.itself,.be.a.factor.in.accession,.promotion,. or.other.personnel.decision-making...Gay.and.lesbian.Service.members,.like. all. Service. members,. are. evaluated. only. on. individual. merit,. fitness,. and. capability... . Harassment.or.abuse.based.on.sexual.orientation.is.unacceptable...All.Service. members. are. to. treat. one. another. with. dignity. and. respect. regardless. of. sexual.orientation.. . If.a.Service.member.experiences.inappropriate.interpersonal.behavior.where. sexual. orientation. is. a. factor,. he. or. she. should. use. existing. (non-MEO). mechanisms.to.file.the.proper.complaint,.namely.the.chain.of.command,.the. Inspector.General,.and.other.means.as.may.be.determined.by.the.Services. . Tiers. 1. and. 2. personnel. should. be. trained. on. the. possible. implications. for. failing. to. take. action. on. complaints. that. are. not. cognizable. under. MEO,. but.allege.discrimination.based.on.sexual.orientation...Possible.implications. include.being.the.subject.of.an.IG.investigation,.being.the.subject.of.a.complaint. of. wrongs. filed. under. UCMJ. Article. 138,. being. the. subject. of. a. Command. Investigation,.or.being.investigated.for.possible.criminal.misconduct.under. the.UCMJ.(e.g.,.dereliction.of.duty).

51

5. Topic: Collection and Retention of Sexual Orientation Data . Training.guidance:..Tiers.1.&.2... . Sexual.orientation.is.a.personal.and.private.matter. . The.Department.of.Defense.and.the.Services.will.not.create.a.data.category. for.Service.member.sexual.orientation. . Service.members.will.not.be.required.to.identify.their.sexual.orientation,.nor. will.any.such.information.be.collected.and.maintained.in.a.system.of.records. . Information. implicating. a. Service. member’s. sexual. orientation. could. be. incidentally. collected. when,. for. example,. a. Service. members. designates. a. same-sex. partner. as. an. SGLI. beneficiary,. or. a. person. to. whom. emergency. notifications.may.be.made.

6. Topic: Uniform Code of Military Justice (UCMJ) . Training.guidance:..Tiers.1,.2,.&.3.. . Service. members. occupy. a. unique. position. in. society. and. represent. the. military.establishment...This.special.status.brings.with.it.a.responsibility.to. uphold.and.maintain.the.dignity.and.high.standards.of.the.Military.Services. at.all.times.and.in.all.places...Service.members.must.be.ready.at.all.times.for. worldwide.deployment... This. fact.carries.with.it.a.requirement.for.Service. members.to.possess.high.standards.of.morale,.good.order.and.discipline,.and. cohesion. . The.UCMJ.remains.the.legal.foundation.for.good.order.and.discipline.in.the. Military.Services.and.is.the.vehicle.for.enforcement.of.proper.conduct. . Harassment,.sexual.assault,.or.other.violence.against.any.Service.member,. for.any.reason,.is.prohibited. . Violations. of. Service. standards. of. conduct. pertinent. to. professional. relationships,.and.public.displays.of.affection.may.be.punished.as.violations. of.lawful.regulations,.orders,.or.derelictions.of.duty,.as.the.case.may.be. . Sodomy. under. Article. 125. of. the. UCMJ. may. be. punishable. if. it. is. without. consent.(forcible)...In.light.of.decisions.by.the.Supreme.Court.and.the.Court. of.Appeals.for.the.Armed.Forces,.private.acts.of.sodomy.between.consenting. adults,. regardless. of. their. sex,. are. not. punishable. absent. factors. unique. to. the. military. environment. (such. as. a. superior-subordinate. relationship. or. other.circumstance.adverse.to.good.order.and.discipline)...In.light.of.these. decisions,. and. the. repeal. of. 10. U.S.C.. §. 654,. conforming. amendments. to. Article.125.of.the.UCMJ.may.be.considered.for.presentation.to.the.Congress. and/or.action.by.President.. . The.Department.of.Defense.is.considering.other.changes.to.the.Manual for Courts-Martial.to.ensure.sexual.orientation-neutral.application...For.example,. the. adultery. offense. may. be. redefined. to. include. both. homosexual. and. heterosexual.sex.

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7. Topic: Privacy and Cohabitation (Showers, Dressing Areas, and Comparable Facilities) . Training.guidance:..Tiers.1.&.2. . Service.in.the.military.makes.it.necessary.at.times.for.Service.members.to. accept.living.and.working.conditions.characterized.by.little.or.no.privacy. . Sexual.orientation.is.considered.a.personal.and.private.matter.. . Berthing.or.billeting.assignments.based.on.sexual.orientation.are.prohibited,. except. that. commanders. retain. the. authority. to. alter. berthing. or. billeting. assignments. on. an. individualized,. case-by-case. basis,. in. the. interest. of. maintaining.morale,.good.order,.and.discipline,.consistent.with.performance. of.mission. . Compliance. with. professional. standards. of. conduct. will. be. essential. to. fostering. respect. among. fellow. Service. members. and. resolving. concerns. about.privacy...Commanders.should.use.existing.tools,.to.include.counseling,. non-judicial. punishment,. and. court-martial,. to. deal. with. misconduct. in. living.quarters.or.showers.

8. Topic: Benefits . Training.guidance:..Tiers.1.&.2. . The. Defense. of. Marriage. Act. and. current. benefit. laws. do. not. allow. the. Department. of. Defense. to. extend. many. key. benefits—including. dependent. medical. coverage,. dependent-rate. BAH,. and. dependent-based. travel. and. transportation. allowances—to. a. Service. member. in. a. relationship. with. a. same-sex.partner. . Federal. law. and. DoD. regulations. do. not. restrict. a. Service. member. from. designating.a.same-sex.partner.as.a.beneficiary.for.certain.benefits.such.as. the. posthumous. disbursement. of. funds. from. the. Service. member’s. ThriftSavings. Plan,. or. the. selection. of. a. beneficiary. for. the. proceeds. from. a. life. insurance. policy. provided. under. Servicemembers’. Group. Life. Insurance. (SGLI)...Service. members.should.be.informed.about.these.benefits.so.that. they. may. take. advantage. of. them. for. their. same-sex. partners,. should. they. desire.to.do.so. . The. Department. of. Defense. and. the. Services. are. studying. whether. some. benefits. may,. consistent. with. current. law,. be. revised. to. give. the. Service. member.the.discretion.to.designate.a.person.or.persons.of.their.choosing.as. a. beneficiary.. . By. extending. these. benefits. and. resources,. the. Department. of.Defense.would.enhance.the.vital.role.that.a.Service.member’s.supporters. can.play.in.enabling.Service.members.to.accomplish.the.mission,.especially. during.times.of.deployment.stress.

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9. Topic: Benefits (Military Family Housing) . Training.guidance:..Tiers.1.&.2... . The.Department.of.Defense.and.the.Services.currently.authorize.assignment. to.military.family.housing.(MFH).to.those.Service.members.eligible.for.Basic. Allowance.for.Housing.(BAH).at.the.with-dependent.rate. . Current. federal. law. including. the. Defense. of. Marriage. Act. precludes. the. Department. of. Defense. from. providing. BAH. to. Service. members. at. the. with-dependent.rate.unless.the.Service.member.has.a.statutorily.authorized. dependent.such.as.a.child. . Current.Service.policies.state.that.non-dependents.are.not.allowed.to.reside. in.military.family.housing...There.have.been.no.changes.to.these.policies... . Any.exception.to.policy.to.allow.a.non-dependent.to.reside.in.military.family. housing.must.be.administered.without.regard.to.sexual.orientation.

10. Topic: Privacy and Cohabitation (Berthing/Billeting) . Training.guidance:..Tiers.1.&.2... . Services.maintain.individual.unaccompanied.housing.policies.in.accordance. with.DoD.guidance. . Service. in. the. Military. Services. makes. it. necessary. at. times. for. Service. members.to.accept.living.and.working.conditions.characterized.by.little.or. no.privacy. . Sexual.orientation.is.considered.a.personal.and.private.matter. . Service.members.shall.not.be.asked.to.identify.sexual.orientation.as.part.of. any.routine.application.for.assignment.to.unaccompanied.quarters. . The.Services.shall.not.establish.quarters.or.berthing.assignment.regulations. or.policies.that.segregate.Service.members.according.to.sexual.orientation.. . Applicable.male/female.segregation.requirements.remain.in.effect. . Commanders.retain.the.authority.to.alter.berthing.or.billeting.assignments.on. an.individualized,.case-by-case.basis,.in.the.interest.of.maintaining.morale,. good.order,.and.discipline,.consistent.with.the.performance.of.the.mission. . Compliance.with.professional.standards.of.conduct.will.be.essential.to.engender. respect.among.fellow.Service.members.and.resolve.concerns.about.privacy..

11. Topic: Benefits (Committed Same-Sex Relationships) . Training.guidance:..Tiers.1.&.2... . The. Department. of. Defense. is. not. at. this. time. creating. a. new. relationship. status. applicable. to. same-sex. relationships. for. purposes. of. eligibility. for. benefits.or.personnel.management.policies.and.practices.

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 . As.part.of.the.post-repeal.follow-on.review,.the.Department.of.Defense.will. revisit.the.issue.of.benefits.and.support.resources.eligibility,.including.whether. a.“qualifying.relationship”.status.should.be.established.for.committed.samesex.relationships,.or.for.both.committed.same-sex.and.committed.unmarried. opposite-sex.relationships,.for.these.purposes. . The.national.debate.on.same-sex.marriage.and.partner.benefits.is.ongoing,. and.the.judicial.and.legislative.landscape.is.in.a.state.of.flux...It.is.possible. that,.in.the.future,.additional.policy.options.may.be.available..

12. Topic: Duty Assignments (Co-Location) . Training.guidance:.Tiers.1.&.2.. . The.Department.of.Defense.provides.the.Services.discretion.to.consider.dualmilitary.spouse.status.in.matters.of.duty.assignment...The.term.“spouse”.can. only. refer. to. opposite-sex. married. couples. under. the. Defense. of. Marriage. Act...As.a.result,.a.Service.member.in.a.same-sex.relationship.with.another. Service.member.is.not.eligible.for.collocation.consideration. . The. Department. of. Defense. is. not. at. this. time. creating. a. new. relationship. status. applicable. to. same-sex. relationships. for. purposes. of. eligibility. for. benefits.or.personnel.management.policies.and.practices. . Gay.and.lesbian.Service.members.in.committed.same-sex.relationships,.like. their. unmarried. heterosexual. counterparts,. can. make. an. individualized,. hardship-based.request.for.accommodation.in.assignment. . As.part.of.the.post-repeal.follow-on.review,.the.Department.of.Defense.will. revisit.the.issue.of.eligibility.for.personnel.management.policies.and.practices,. including. whether. a. “qualifying. relationship”. status. should. be. established. for.committed.same-sex.relationships,.or.for.both.committed.same-sex.and. committed.unmarried.opposite-sex.relationships,.for.these.purposes. . The.national.debate.on.same-sex.marriage.and.partner.benefits.is.ongoing,. and.the.judicial.and.legislative.landscape.is.in.a.state.of.flux...It.is.possible. that,.in.the.future,.additional.policy.options.may.be.available..

13. Topic: Duty Assignments (Overseas Assignments) . Training.guidance:..Tiers.1.&.2. . There.are.no.restrictions.on.overseas.assignments.of.gay.and.lesbian.personnel. . All. Service. members. will. be. provided. with. information. on. host-country. laws.and.related.military.policies.regarding.homosexuality.and.homosexual. conduct.in.standard.overseas.deployment.briefings. . Current. law. limits. the. ability. of. the. Department. of. Defense. to. fund. and. support.accompanying.travel.for.a.Service.member’s.same-sex.partner.

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 . Gay.and.lesbian.Service.members.in.committed.same-sex.relationships,.like. their. unmarried. heterosexual. counterparts,. can. make. an. individualized,. hardship-based.request.for.accommodation.in.assignment.

14. Topic: Medical . Training.guidance:..Tiers.1.&.2. . No. modifications. to. existing. medical. policies. have. been. made.. Existing. policies.and.procedures.for.HIV.screening.and.testing,.management.of.HIVpositive.personnel,.and.management.of.the.military.blood.supply.continue.to. be.effective... . The.Service. Surgeons.General.have.determined.that.repeal.does.not.affect. the.medical.readiness.of.the.force.and.that.changes.to.medical.policies.are. not.necessary. . Member. information. revealed. during. medical. evaluations. and. treatments. continues. to. be. protected. under. the. Health. Insurance. Portability. and. Accountability.Act.(HIPAA). . Current.policy.that.HIV-infected.members.shall.not.be.retired.or.separated. solely.on.the.basis.of.HIV.infection.remains.in.place...Active.duty.members. with.HIV.determined.to.be.fit.for.duty.are.allowed.to.serve.in.a.manner.that. ensures.access.to.appropriate.medical.care. . Annual. Service. medical. and. first. aid/buddy. care. training. will. continue. to. focus.on.modes.of.transmission.and.the.prevention.of.HIV.and.other.sexually. transmitted.diseases,.with.a.requirement.that.more.detailed.education.and. training. continue. to. be. provided. to. healthcare. professionals. and. other. individuals.working.within.patient.care.

15. Topic: Accessions and Recruiting Policy . Training.guidance:..Tiers.1.&.2... . The.Department.of.Defense.will.not.create.a.new.policy.for.recruiting. . The. current. policy. of. not. requiring. an. applicant. to. declare. his/her. sexual. orientation.remains.in.effect. . Sexual.orientation.alone.is.not.a.bar.to.military.service.or.continued.service. . The. requirement. for. briefings. given. to. applicants. for. enlistment. and. appointment. regarding. personal. conduct. in. the. Military. Services. and. separation. policy. remains. in. effect.. . Previous. provisions. pertaining. to. homosexual.conduct.as.a.basis.for.discharge.have.been.deleted.

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16. Topic: Re-Accession . Training.guidance:..Tiers.1.&.2.. . Prior.Service.members.discharged.on.the.basis.of.homosexual.conduct.who. seek. reentry. are. evaluated. according. to. the. same. criteria. as. other. Service. members.seeking.reentry,.which.may.include.their.past.record.of.performance,. characterization.of.service,.and.needs.of.the.Service. . In.considering.requests.for.reentry.for.those.previously.separated.on.the.basis. of.homosexual.conduct,.the.fact.that.the.basis.for.separation.was.homosexual. conduct.is.not.considered.to.the.detriment.of.the.applicant,.and.those.personnel. who. have. DD. Form. 214. documents. that. show. an. honorable. discharge. (or. an. uncharacterized. discharge. for. those. occurring. during. initial. training). and. a. separation.code.reflecting.homosexual.conduct.are.to.be.considered.for.reentry. . Services. have. discretion. to. determine. whether. to. change. reentry. codes. in. some. uniform. manner. or. to. issue. guidance. to. ensure. that. a. disqualifying. reentry.code.on.a.DD.Form.214.will.not.prohibit.consideration.of.a.qualified. candidate.for.reentry. . Services. shall. not. require. all. Service. members. to. first. petition. a. Board. for. Correction. of. Military. Records. to. change. adverse. reentry. codes. prior. to. applying. for. reentry. as. this. may. substantially. delay. consideration. of. applications. . Prior. service. personnel—whether. applying. for. reentry. or. not—who. seek. a. change. to. adverse. reentry. codes. or. discharge. characterizations. or. other. redress.may.petition.their.Service.Board.for.Correction.of.Military.Records. and.Discharge.Review.Boards.for.relief.under.existing.procedures...

17. Topic: Release from Service Commitments . Training.guidance:..Tiers.1.&.2.. . The. Department. of. Defense. does. not. establish. a. specific. policy. permitting. the.early.discharge.of.Service.members.based.upon.opposition.to.repeal.or.to. serving.or.living.with.gay.and.lesbian.Service.members... . Service.members.may.request.to.be.voluntarily.discharged.under.the.Military. Department. Secretary’s. plenary. authority.. . As. under. current. policy,. such. discretionary.discharge.may.only.be.granted.when.the.Military.Department. Secretary.has.determined.the.early.separation.would.be.in.the.best.interest. of.the.Service... . Service.members.are.not.guaranteed.a.certain.legal.or.policy.landscape.for. the.duration.of.their.service.commitment... . If.a.chaplain.is.unable.to.reconcile.serving.with.or.caring.for.gay.and.lesbian. Service. members. with. his. or. her. faith,. the. chaplain. may. request. that. the. relevant. endorsing. agency. withdraw. its. ecclesiastical. endorsement. for. him. or.her...This.would.trigger.an.administrative.separation.under.DoDI.1304.28.. .

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18. Topic: Re-Accession (Claims for Compensation and Other Redress) . Training.guidance:..Tier.1.&.2... . There. is. no. change. to. existing. policy. regarding. compensation,. separation. pay,.or.other.redress.for.Service.members.previously.discharged.on.the.basis. of.homosexual.conduct. . Lawful.standards.in.effect.at.the.time.of.a.Service.member’s.separation.are. not.changed.with.retroactive.effect. . Service. members. separated. on. the. basis. of. homosexual. conduct. (or. any. other. reason). may. petition. for. redress. through. the. Service. Boards. for. the. Correction. of.Military.Records.or.Service.Discharge.Review. Boards.under. existing.procedures.and.standards.

19. Topic: Separation for Homosexual Conduct . Training.guidance:..Tiers.1.&.2... . Service.members.are.no.longer.subject.to.administrative.separation.on.the. basis.of.homosexual.conduct.(homosexual.acts,.statements,.or.marriage). . Sexual.misconduct,.regardless.of.sexual.orientation,.that.violates.a.Service. standard,.rule,.regulation,.policy.or.law,.will.still.be.considered.grounds.for. administrative.or.legal.action,.to.include.possible.discharge. . The.Department.of.Defense.and.the.Services.are.updating.training.modules. regarding. administrative. separation. to. remove. references. to. homosexual. conduct.as.a.basis.for.separation.

20. Topic: Key Policy Features . Training.guidance:..Tiers.1,.2.&.3... . Sexual.orientation.remains.a.personal.and.private.matter...Service.members. and.applicants.to.military.service.will.not.be.asked.or.required.to.reveal.their. sexual.orientation. . Sexual.orientation.is.not.a.bar.to.service.entry.or.continued.service. . Service.members.will.not.be.subject.to.administrative.separation.for.otherwise. lawful.homosexual.acts,.statements,.or.marriage. . The. Military. Services. do. not. tolerate. harassment. or. violence. against. any. Service.member,.for.any.reason.

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21. Topic: Frequently Asked Questions Consist.of.issues.and.answers.to.a.range.of.questions.derived.from.the. Working.Group’s.engagement.of.the.force. . Training.guidance:..Tiers.1.&.2... . Provide.standardized.responses.to.the.range.of.issues.associated.with.repeal. . Reinforce. expectations. of. exemplary. conduct. and. professionalism. in. the. force. . Reinforce. DoD. policies. and. directives. to. address. practical. issues. for. commanders.and.leaders.

22. Topic: Vignettes Consist. of. hypothetical,. policy-related. teaching. scenarios. for. training. created.to.assist.commanders.and.leaders.implement.the.change.in.policy...Not. meant.to.provide.“correct”.outcomes,.but.serve.to.illustrate.approaches.to.the. range.of.issues.associated.with.repeal. . Training.guidance:..Tiers.1.&.2... . Reinforce. expectations. of. exemplary. conduct. and. professionalism. in. the. force. . Achieve.minimum.disruption.through.practical.examples. . Ensure.common.examples.of.personal.and.professional.behavior. . Ensure. leaders. and. commanders. have. significant. practice. applying. the. change.in.policy.with.fact-based.scenarios.

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60

A PPEN D I X

C

RECOMMENDED LEADERSHIP IMPLEMENTATION GUIDE

This.Leadership.Implementation.Guide.is.a.tool.to.help.leaders.at.all.levels.address. practical.issues.associated.with.a.repeal.of.the.Don’t.Ask,.Don’t.Tell.law.and.policy...

Key Implementation Message
Based.on.engagements.with.the.force.and.the.assessment.of.the.potential.effect. of.repeal,.the.Working.Group.distills.the.key.message.for.risk.mitigation.and.successful. implementation.to.Leadership-Professionalism-Respect...
Leadership...The.clear.message.from.the.Working.Group’s.assessment.is.“leadership. matters. most.”. . Leaders. at. all. levels. of. the. chain. of. command. set. the. example. for. members. in. the. unit. and. must. be. fully. committed. to. DoD. policy. to. sustain. unit. effectiveness,.readiness,.and.cohesion... Professionalism.. . Leaders. must. emphasize. Service. members’. fundamental. professional.obligations.and.the.oath.to.support.and.defend.the.Constitution.that.is. at.the.core.of.their.military.service...In.the.profession.of.arms,.adherence.to.military. policy. and. standards. of. conduct. is. essential. to. unit. effectiveness,. readiness,. and. cohesion. Respect. .Unit.strength.depends.on.the.strength.of.each.member...We.achieve.that. strength.by.treating.each.member.with.respect...

A.clear.focus.on.Leadership-Professionalism-Respect.will.enable.any.change. in.policy.to.be.executed.with.minimum.disruption.to.the.force...Strong.and.supportive. leadership.rather.than.over-regulation..will.ensure.successful.implementation...Leadership. guiding.principles.are: . Leadership. matters. most.. . Leaders. at. all. levels. are. responsible. for. mission. accomplishment,.unit.cohesion,.and.the.care.and.treatment.of.all.those.under.their. command. . Leaders. are. responsible. for. ensuring. that. personnel. are. evaluated. on. individual. merit,.fitness,.and.capability... . Sexual.orientation.is.considered.a.personal.and.private.matter...All.members.of.the. unit.must.be.treated.with.respect.and.dignity.

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 . Service.members.will.not.be.required.to.change.their.personal.views.and.religious. beliefs....They.must,.however,.continue.to.respect.and.serve.with.others.who.hold.different. views.and.beliefs... . All. Service. members. will. be. held. to. the. same. standards. of. conduct.. Harassment,. bullying,.or.victimization.of.any.kind.is.unprofessional.and.will.not.be.tolerated...

This. guide,. along. with. vignettes. and. Frequently. Asked. Questions. (FAQs),. are. available. to. provide. leaders. and. Service. members. with. the. facts. about. repeal,. but. it. cannot.account.for.every.situation.that.might.occur...Leaders.are.expected.to.use.their. judgment.and.knowledge.of.regulations.and.standards.to.ensure.a.smooth.post-repeal. transition.with.minimum.disruption.to.the.force...Leaders,.both.officer.and.enlisted,.are. essential.to.implementing.this.change.in.policy.fairly.and.consistently..

Summary of the Working Group’s Report
What.follows.is.a.very.brief.summary.of.the.work.of.the.Comprehensive.Review. Working.Group.and.the.Report.provided.by.its.Co-Chairs.to.the.Secretary.of.Defense..... Leaders.should.review.the.Working.Group’s.Report.to.obtain.a.complete.account. of.Co-Chairs’.assessment.and.recommendations. Mission On. March. 2,. 2010,. the. Secretary. of. Defense. established. a. working. group. to. undertake.a.comprehensive.review.of.the.impacts.of.repeal,.should.it.occur,.of.Section. 654.of.Title.10.of.the.United.States.Code,.commonly.known.as.the.Don’t.Ask,.Don’t.Tell. law...The.Working.Group’s.assignment.from.the.Secretary.was.two-fold:..1).assess.the. impact.of.repeal.of.Don’t.Ask,.Don’t.Tell.on.military.readiness,.military.effectiveness,.unit. cohesion,. recruiting,. retention,. and. family. readiness;. and. 2). recommend. appropriate. changes,. if. necessary,. to. existing. regulations,. policies,. and. guidance. in. the. event. of. repeal...The.Secretary.of.Defense.also.directed.the.Working.Group.to.develop.a.plan.of. action.to.support.implementation.of.a.repeal.of.Don’t.Ask,.Don’t.Tell... The.Secretary.of.Defense.directed.the.Working.Group.to.“thoroughly,.objectively. and.methodically.examine.all.aspects.of.this.question,”.and.include,.most.importantly,. the.views.of.men.and.women.in.uniform.. Engagement of the Force During.the.course.of.its.review,.the.Working.Group,.among.other.things: . solicited. the. views. of. nearly. 400,000. active. duty. and. reserve. component. Service. members. with. an. extensive. and. professionally-developed. survey,. which. prompted. 115,052.responses—one.of.the.largest.surveys.in.the.history.of.the.U.S..military;

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 . solicited. the. views. of. over. 150,000. spouses. of. active. duty. and. reserve. component. Service.members,.because.of.the.influence.and.importance.families.play.in.the.lives. of. Service. members. and. their. decisions. to. join,. leave,. or. stay. in. the. military,. and. received.44,266.responses; . created.an.online.inbox.for.Service.members.and.their.families.to.offer.their.views,. through.which.a.total.of.72,384.entries.were.received; . conducted.95.face-to-face.“information.exchange.forums”.at.51.bases.and.installations. around. the. world,. where. the. Working. Group. interacted. with. over. 24,000. Service. members; . conducted.140.smaller.focus.group.sessions.with.Service.members.and.their.families.

What the Working Group Heard Survey Results...The.results.of.the.Service.member.survey.revealed.a.widespread. attitude.among.a.solid.majority.of.Service.members.that.repeal.of.Don’t.Ask,.Don’t.Tell. will.not.have.a.negative.impact.on.their.ability.to.conduct.their.military.mission...The. results.of.the.survey.are.best.represented.by.the.answers.to.three.questions: . When.asked.about.how.having.a.Service.member.in.their.immediate.unit.who.said.he. or.she.is.gay.would.affect.the.unit’s.ability.to.“work.together.to.get.the.job.done,”.70%. of.Service.members.predicted.it.would.have.a.positive,.mixed,.or.no.effect...(Question. 68a.) . When.asked.“in.your.career,.have.you.ever.worked.in.a.unit.with.a.co-worker.that. you. believed. to. be. homosexual,”. 69%. of. Service. members. reported. that. they. had.. . (Question.36.) . When.asked.about.the.actual.experience.of.serving.in.a.unit.with.a.co-worker.who. they.believed.was.gay.or.lesbian,.92%.stated.that.the.unit’s.“ability.to.work.together”. was.“very.good,”.“good,”.or.“neither.good.nor.poor.”..(Question.47a.)

Consistently,.the.survey.results.revealed.a.large.group.of.around.50–55%.of.Service. members.who.thought.that.repeal.of.Don’t.Ask,.Don’t.Tell.would.have.mixed.or.no.effect;. another.15–20%.who.said.repeal.would.have.a.positive.effect;.and.about.30%.who.said. it.would.have.a.negative.effect...When.spouses.were.asked.about.whether.repeal.of.Don’t. Ask,.Don’t.Tell.would.affect.their.preference.for.their.Service.member’s.future.plans.to. stay.in.the.military,.74%.said.repeal.would.have.no.effect,.while.only.12%.said.“I.would. want.my.spouse.to.leave.earlier.” These.survey.results.did.reveal.a.significant.minority—around.30%.overall.(and. 40–60%.in.the.Marine.Corps.and.in.various.combat.arms.specialties)—who.predicted.in. some.form.and.to.some.degree.negative.views.or.concerns.about.the.impact.of.a.repeal.

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of.Don’t.Ask,.Don’t.Tell...However,.there.were.a.number.of.other.factors.that.still.led.the. Co-Chairs.to.conclude.that.the.risk.of.repeal.to.overall.military.effectiveness.is.low. Frequently raised issues...In.the.Working.Group’s.other.engagements.with.the. force. (information. exchange. forums,. focus. groups,. online. inbox,. confidential. online. communications),.certain.issues.and.concerns.were.raised.repeatedly...Three.of.these. are.summarized.below:
Standards of conduct...Many.Service.members.raised.the.possibility.of.inappropriate. conduct. that. might. take. place. in. the. event. of. repeal,. including. unprofessional. relationships.between.Service.members;.public.displays.of.affection;.inappropriate. dress.and.appearance;.and.acts.of.violence,.harassment,.and.disrespect... Moral and religious concerns...A.large.number.of.Service.members.raised.religious. and.moral.objections.to.homosexuality.or.to.serving.alongside.someone.who.is.gay.. . Some.feared.repeal.of.Don’t.Ask,.Don’t.Tell.might.limit.their.individual.freedom.of. expression. and. free. exercise. of. religion,. or. require. them. to. change. their. personal. beliefs.about.the.morality.of.homosexuality...Some.of.the.most.intense.and.sharpest. divergence.of.views.about.Don’t.Ask,.Don’t.Tell.was.found.among.the.chaplains.corps.. Privacy.. . A. large. number. of. Service. members. expressed. discomfort. with. sharing. bathroom.facilities.or.living.quarters.with.those.they.know.to.be.gay.or.lesbian...

Assessment Based.on.all.they.saw.and.heard,.the.assessment.of.the.Co-Chairs.of.the.Working. Group.was.that,.when.coupled.with.the.prompt.implementation.of.the.recommendations. they.provided,.the.risk.of.repeal.of.Don’t.Ask,.Don’t.Tell.to.overall.military.effectiveness. is.low...The.Co-Chairs.concluded.that,.while.a.repeal.of.Don’t.Ask,.Don’t.Tell.will.likely,. in. the. short. term,. bring. about. some. limited. and. isolated. disruption. to. unit. cohesion. and. retention,. they. do. not. believe. this. disruption. will. be. widespread. or. long-lasting,. and.can.be.adequately.addressed.by.the.recommendations.they.offered...The.Co-Chairs. stated.that.longer.term,.with.a.continued.and.sustained.commitment.to.core.values.of. leadership,.professionalism,.and.respect.for.all,.they.are.convinced.that.the.U.S..military. can.adjust.and.accommodate.this.change,.just.as.it.has.others.in.history. Summary of Working Group Recommendations The.most.significant.policy.change.resulting.from.repeal.is.that.Service.members. will.no.longer.be.separated.solely.on.the.basis.of.homosexual.conduct.(acts,.statements,. same-sex.marriage)... The.Working.Group.provided.a.number.of.recommendations.for.other.policies.in. the.event.of.repeal...These.recommendations.were.based.on.the.conclusion.that.repeal. will.work.best.if.it.is.accompanied.by.a.message.and.policies.that.promote.fair.and.equal.

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treatment.of.all.Service.members,.minimize.differences.among.Service.members.based. on.sexual.orientation,.and.disabuse.Service.members.of.any.notion.that,.with.repeal,.gay. and.lesbian.Service.members.will.be.afforded.some.type.of.special.treatment... A. brief.summary. of.post-repeal. policy. guidance. based. on. the. Working. Group’s. recommendations. follows.. . Leaders. should. review. the. Working. Group. report. and. Support.Plan.for.Implementation.and.subsequent.DoD.and.Service-level.policy.guidance. to. ensure. they. understand. current. policies. in. full.. . Leaders. must. also. stay. aware. of. future.changes.and.developments.related.to.implementation.of.repeal.. Standards of Conduct:. . Service. standards. of. conduct. must. be. sexual. orientation. neutral.. . All. members. are. responsible. for. upholding. and. maintaining. the. high. standards.of.the.U.S..military.at.all.times.and.in.all.places. Privacy and Cohabitation:. . Berthing. or. billeting. assignments. or. the. designation. of. bathroom. facilities. based. on. sexual. orientation. are. prohibited.. . Commanders. retain. the. authority. to. alter. berthing. or. billeting. assignments. or. accommodate. privacy. concerns. (to. include. concerns. regarding. privacy. in. bathing. facilities). on. an. individualized,. case-by-case. basis,. in. the. interests. of. morale,. good. order. and. discipline,.and.consistent.with.performance.of.mission. Moral and Religious Concerns:...Service.members.will.not.be.required.to.change. their.personal.views.and.religious.beliefs;.they.must,.however,.continue.to.respect.and. serve.with.others.who.hold.different.views.and.beliefs...Consistent.with.existing.policies,. in. the. context. of. their. religious. ministry. chaplains. are. not. required. to. take. actions. inconsistent.with.their.religious.beliefs,.but.must.still.care.for.all.Service.members. Benefits:. . For. the. time. being,. all. Service. members. not. in. a. Federally-recognized. marriage. will. be. treated. as. “single”. for. the. purposes. of. benefits. eligibility.. . The. Department. of. Defense. is. studying. ways. to. extend. additional. benefits. to. Service. members. to. improve. personal. readiness,. especially. during. deployments. and. other. stressful.times. Equal Opportunity:. . Sexual. orientation. is. not. specified. as. a. class. eligible. for. complaint.resolution.processes.under.the.MEO.Program...Sexual.orientation.is.treated. under.the.same.general.principles.of.MEO.policy.that.apply.to.all.Service.members.. . Sexual. orientation. may. not,. in. and. of. itself,. be. a. factor. in. accession,. promotion,. or.other.personnel.decision-making,.and.gay.and.lesbian.Service.members,.like.all. Service.members,.are.evaluated.only.on.individual.merit,.fitness,.and.capability.

Command and Supervisory Responsibilities and Guidance . Remember. the. key. implementation. message. of. Leadership-ProfessionalismRespect at.all.times.when.interacting.with.the.people.in.your.unit.

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 . You.will.encounter.situations.that.are.not.covered.in.this.guidance...Many.Service. members. have. strong. personal. opinions. about. the. repeal. of. Don’t. Ask,. Don’t. Tell,. which.will.likely.cause.spirited.debate.and.raise.difficult.questions....Key.to.successful. implementation. is. the. application. of. well-informed. and. firm. leadership. and. a. common-sense.approach...You.are.encouraged.to.seek.further.advice.and.guidance. from.your.chain.of.command,.legal.advisors,.and.appropriate.command.staffs. . Commanders. and. leaders. at. every. level. must. work. to. reinforce. the. dignity. and. respect.of.all.Service.members.within.Service.cultures,.courtesies,.traditions,.and. core.values...We.promote.these.values.best.by.living.them..... . Uniform,.dress,.and.appearance.standards.are.not.modified.with.the.repeal.of.the. Don’t.Ask,.Don’t.Tell.legislation....All.Services.will.continue.to.enforce.their.respective. standards.as.prescribed.by.their.traditions.and.values... . Service.members.will.refrain.from.unwanted.discussions.of.sexual.desires,.practices,. and.experiences.that.could.cause.offense.to.others...These.types.of.discussions.are. unprofessional. and. are. not. conducive. to. ensuring. or. maintaining. a. unit’s. morale,. cohesion,.and.good.order.and.discipline. . Commanders.and.supervisors.at.all.levels.have.the.authority.and.the.responsibility.to. maintain.good.order,.discipline,.and.morale.within.their.units...They.are.accountable. for.their.actions.in.all.cases... . As. indicated. above,. some. specialty. areas,. especially. in. the. combat. arms,. expressed.more.concerns.about.repeal.than.other.specialties...However,.this. is. not. to. say. all. combat. units. oppose. repeal. while. all. support. units. are. in. favor.of.repeal...Each.unit.and.individual.Service.member.is.unique...Leaders. must. take. the. time. to. get. to. know. their. people. and. the. concerns. of. their. particular.unit.in.order.to.guard.against.stereotypes.negatively.impacting.the. cohesion.and.effectiveness.of.their.unit.... . Leaders.must.never.use.their.position.of.authority.to.inappropriately.or.illegally.benefit. or.disadvantage.another.person.for.any.reason....Misconduct.involving.abuse.of.position,. trust,.or.rank.is.particularly.egregious.and.will.be.dealt.with.swiftly.and.severely. . As. a. general. rule,. leaders. intervene. in. the. private. lives. of. their. subordinates. only. where.it.is.necessary.in.the.interest.of.accomplishing.the.mission.or.to.ensure.the. health.and.well-being.of.the.force... . Typically,.early.and.effective.counseling.can.curtail.unprofessional.conduct...More.serious. cases.may.warrant.administrative.action,.non-judicial.punishment,.or.court-martial... . Devotion.to.our.values,.our.culture.of.mutual.respect,.and.our.obedience.to.lawful. orders.is.one.reason.why.we.remain.the.world’s.greatest.military.power...

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 . Personal.privacy.is.a.concern.for.many.Service.members...Service.members.accept. living.and.working.conditions.that.are.often.austere,.primitive,.and.characterized.by. forced.intimacy.with.little.or.no.privacy...Leaders.continue.to.have.the.discretion.to. grant.privacy.requests.(e.g.,.related.to.latrines,.showers,.billeting).where.necessary. in.the.interest.of.maintaining.morale,.good.order.and.discipline,.and.consistent.with. performance.of.mission. . Commanders’.leadership.and.personal.commitment.to.implementation.must.be.visible. and.unequivocal...Commanders.are.expected.to.exemplify.standards.of.professional. conduct. and. build. on. their. Service. cultures. to. ensure. all. Service. members. are. respected,.treated.fairly,.and.valued.for.their.contributions.and.performance... . Misconduct. must. be. addressed. quickly,. appropriately,. and. in. proportion. to. the. seriousness. of. the. offense.. . A. leader’s. initial. response. may. constitute. a. formal. warning,.official.censure,.or.other.disciplinary.action...In.particularly.serious.cases,. or.where.an.individual.persists.with.or.has.a.history.of.acts.of.social.misconduct,. formal.disciplinary.or.administrative.action.should.be.taken. . Service.members.have.the.right.to.reveal.their.sexual.orientation.or.keep.it.private.. . Leaders.must.ensure.that.unit.members.are.respectful.and.do.not.refer.to.individuals. or. groups. in. a. derogatory. way.. . This. includes. gay. and. lesbian. individuals. as. well. as.people.who.have.moral.or.religious.concerns.with.repeal,.all.of.whom.could.be. stereotyped.in.a.negative.way... . Military. life. is. fundamentally. different. from. civilian. life.. . The. military. society. is. characterized. by. its. own. laws,. rules,. customs,. and. traditions.. . Service. members. accept.numerous.restrictions.on.personal.behavior,.which.require.them.to.routinely. subjugate.personal.desires.and.well-being.for.the..good.of.the.unit....While.the.traditions. and.standards.of.military.service.may.not.be.acceptable.in.much.of.civilian.society,. they.are.necessary.to.accomplish.the.duties.of.military.service...Repeal.of.Don’t.Ask,. Don’t.Tell.does.not.alter.this.fundamental.characteristic.of.military.service...Leaders. must.exemplify.and.develop.in.others.the.ability.to.put.Service.before.self.to.execute. the.mission. . The.bonds.of.trust.among.individual.Service.members.are.important.to.the.combat. effectiveness. of. a. unit.. . Leaders. must. continue. to. create. within. their. units. strong. bonds.of.trust.in.training.to.ensure.success.in.the.field... . The.standards.of.conduct.for.members.of.the.military.regulate.a.Service.member’s. life. 24. hours. a. day,. 7. days. a. week.. . The. consistent,. unwavering. application. of. the. standards. of. conduct. is. necessary. because. Service. members. must. be. ready. at. all. times.for.worldwide.deployment..

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A PPEN D I X

D

FREQUENTLY ASKED QUESTIONS AND VIGNETTES

Frequently. Asked. Questions. (FAQs). and. training. vignettes. were. developed. as. an.efficient.and.effective.way.to.get.information.rapidly.to.the.force...The.Leadership. Implementation.Guide.in.Appendix.C.and.the.FAQs.and.vignettes.in.this.appendix.are. designed.to.give.the.Services.a.basis.from.which.they.can.develop.education.and.training. materials... The. FAQs. can. be. adapted. to. many. audiences,. to. include. Service. members,. families,.and.the.public...The.vignettes.were.developed.as.tools.for.leaders.and.trainers. to.address.some.of.the.areas.of.concern.the.Working.Group.heard.in.its.engagements. with.the.force...The.FAQs.and.vignettes.are.not.all-inclusive...The.Services.should.review. the. content. and. subject. areas. represented. in. this. appendix. to. ensure. they. address. Service-specific.areas.of.concern.and.that.the.language.is.appropriate.for.their.Service. culture.. . Service. Headquarters. Training. representatives,. Service. academy. and. war. college. academic. faculty,. Office. of. the. Under. Secretary. of. Defense. for. Personnel. &. Readiness.(OUSD(P&R)).representatives,.and.Defense.Equal.Opportunity.Management. Office.(DEOMI).personnel.assisted.in.the.creation.of.these.tools.... As.the.Department.of.Defense.and.the.Services.adapt.the.FAQs.and.the.vignettes. for.their.use,.they.should.continue.to.work.with.DEOMI.training.specialists...In.addition,. the.Department.of.Defense.and.the.Services.should.consider.creating.an.online.resource. where.Service.members.and.their.families.can.ask.questions.not.covered.in.the.tools. provided.. . The. Working. Group. used. the. following. framework. to. create. the. FAQs. and. vignettes. and. recommends. that. the. Department. of. Defense. and. the. Services. follow. similar.guidance.when.working.with.these.products.. . Use.language.that.is.respectful.of.all.perspectives.and.does.not.inadvertently.refer. to.individuals.or.communities.in.a.derogatory.way...This.includes.gay.and.lesbian. individuals. as. well. as. people. of. faith. who. have. moral. concerns. with. repeal,. all. of. whom. can. be. stereotyped. in. a. negative. way.. . The. Working. Group. recommends. following.American.Psychological.Association.conventions.on.sexual.orientation.and. suggests.using.the.terms.“gay”.(or.gay.men),.“lesbian”.(or.lesbians),.and.“bisexual”.(or. bisexual.individuals).instead.of.the.term.“homosexual”.(or.homosexuals).as.the.use. of.“homosexual”.tends.to.be.associated.with.more.negative.stereotypes...Similarly,. the.Working.Group.recommends.avoiding.language.that.stereotypes.people.of.faith. (e.g.,. extremist,. fundamentalist,. fanatic). who. hold. strong. moral. convictions. about. homosexuality...

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 . While. it. is. critical. to. address. the. issues. and. concerns. Service. members. expressed. in. the. Working. Group’s. engagements. with. the. force,. this. should. be. done. without. validating. stereotypes. and. misperceptions. regarding. gay. men. and. lesbians.. . FAQs. and. vignettes. should. be. phrased. to. ask. broad,. neutral. questions.. . Language. that. perpetuates. a. stereotype. of. any. group,. as. well. as. hypothetical. situations. based. on. stereotype,.should.be.avoided. . FAQs. and. vignettes. should. be. written. in. clear,. concise,. jargon-free. language. and. cover. topics. and. issues. that. are. either. frequent. concerns. in. the. force. or. have. the. potential.for.high.negative.impact.if.not.addressed. . The. Working. Group’s. research. indicates. that. existing. policies. and. regulations. will. adequately.address.most.of.the.concerns.and.issues.regarding.repeal...This.research. also.suggests.that.unified.leadership.along.with.the.professionalism.of.the.force.will. mitigate.most.concerns...Therefore,.the.Working.Group.does.not.find.it.necessary.to. address.every.possible.variation.of.repeal.and.recommends.that.the.Services.adapt. the.FAQs.and.vignettes.to.meet.their.needs.and.concerns...

Frequently Asked Questions (FAQs)
1. What is the new policy on sexual orientation in the military? Service.members.will.not.be.involuntarily.separated.for.lawful.homosexual. conduct. Sexual.orientation.remains.a.personal.and.private.matter...Sexual.orientation. or.homosexual.conduct.(statements,.acts,.same-sex.marriage).are.not.a.basis. for. separation,. reassignment,. or. special. consideration.. . Service. members. may.inform.others.of.their.sexual.orientation.at.their.own.discretion.. The.Department.of.Defense.will.not.ask.Service.members.to.identify.their. sexual.orientation...The.Department.of.Defense.will.not.collect.or.maintain. data.on.an.individual’s.sexual.orientation. 2. How will repeal of Don’t Ask, Don’t Tell affect recruitment and retention policies? If.otherwise.qualified,.individuals.may.join.and.serve.in.the.Military.Services. without.regard.to.sexual.orientation.. Sexual.orientation.is.not.a.factor.in.recruitment.or.retention.in.the.Military. Services,. and. the. Department. of. Defense. does. not. have. sexual. orientation. targets.or.quotas.for.recruiting.

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3. Will Service members honorably discharged under Don’t Ask, Don’t Tell be allowed to reenter the Military Services? All. honorably. discharged. Service. members. have. an. equal. opportunity. to. apply.for.reentry...Services.will.determine.re-accession.based.on.need.and.a. number.of.other.factors,.but.sexual.orientation.will.not.be.a.factor. 4. Can transgender or transsexual individuals join the Military Services? No...Transgender.and.transsexual.individuals.are.not.permitted.to.join.the. Military.Services...The.repeal.of.Don’t.Ask,.Don’t.Tell.has.no.effect.on.these. policies... 5. Does repeal of Don’t Ask, Don’t Tell affect benefits for partners of gay and lesbian Service members? Gay.and.lesbian.Service.members.are.eligible.for.the.same.benefits.as.any. single.Service.member...For.example,.any.single.Service.member.may.extend. to. someone. of. their. choosing. benefits. such. as. notification. instructions. on. their.Form.93,.Record of Emergency Data.(RED),.and.listing.the.designated. individual. as. an. SGLI. beneficiary.. . The. Department. of. Defense. is. also. examining.other.benefits.that.may.be.included.in.this.set. Context:. . Under. the. Defense. of. Marriage. Act. (DOMA),. the. Federal. Government. defines. marriage. as. a. legal. union. between. one. man. and. one. woman.as.husband.and.wife,.and.the.word.“spouse”.refers.only.to.a.person.of. the.opposite.sex.who.is.a.husband.or.a.wife...Under.DOMA,.married/spouse. benefits.cannot.be.extended.to.an.unmarried.partner,.to.include.same-sex. partners... 6. Does repeal of Don’t Ask, Don’t Tell affect the religious rights of chaplains? No.. . Chaplains. will. continue. to. have. freedom. to. practice. their. religion. according. to. the. tenets. of. their. faith.. . In. the. context. of. their. religious. ministry,. chaplains. are. not. required. to. take. actions. that. are. inconsistent. with.their.religious.beliefs.(e.g.,.altering.the.content.of.sermons.or.religious. counseling,. sharing. a. pulpit. with. other. chaplains,. or. modifying. forms. of. prayer.or.worship)... Chaplains.of.all.faiths.care.for.all.Service.members.and.facilitate.the.free. exercise. of. religion. for. all. personnel,. regardless. of. religious. affiliation. of. either.the.chaplain.or.the.individual. Chaplains. minister. to. members. and. provide. advice. to. commanders. on. matters. of. religion,. morals,. ethics,. and. morale. in. accordance. with,. and. without. compromising,. the. tenets. or. requirements. of. their. faith.. . If,. in. a.

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chaplain’s. discharge. of. his/her. broader. duties. within. the. unit,. he/she. is. faced.with.an.issue.contrary.to.his/her.individual.faith,.he/she.may.refer.the. Service.member.to.other.appropriate.counsel. If. a. chaplain. is. unable. to. discharge. his/her. duties. as. a. result. of. a. repeal,. current.regulations.permit.a.chaplain.to.request.that.the.relevant.endorsing. agency.withdraw.its.ecclesiastical.endorsement.of.the.individual.chaplain. 7. Does repeal of Don’t Ask, Don’t Tell affect the speech, morals, or religious rights of Service members? No.. There. will. not. be. any. modifications. or. revisions. to. policy. regarding. Service. members’. protections. and. obligations. with. respect. to. free. speech. and.free.exercise.of.religion. The.Department.of.Defense.recognizes.the.right.of.all.Service.members.of. the.Military.Services.to.hold.individual.beliefs.consistent.with.their.moral. foundations.and.conscience.and.does.not.seek.to.change.them. Service.members.can.continue.to.freely.practice.their.religion.and.express. their.personal.views.within.the.limitations.of.the.UCMJ.and.Service.standards. of.conduct. 8. Will the Department of Defense establish a new category of early release from service commitments for Service members based on moral, religious, or other objections to the repeal of Don’t Ask, Don’t Tell? No...The.Department.of.Defense.does.not.permit.the.early.discharge.of.Service. members.based.upon.their.opposition.to.the.repeal.of.any.new.policy...This. includes. Don’t. Ask,. Don’t. Tell. or. objection. to. serving. with. or. living. in. the. company.of.any.Service.member... Existing.regulations.allow.Service.members.with.a.service.commitment.to. request. early,. voluntary. discharge. under. their. Service. Secretary’s. plenary. authority...Granting.these.types.of.requests.is.at.the.discretion.of.the.Service. Secretary.and.is.granted.only.when.the.early.separation.would.be.in.the.best. interest. of. the. Service.. . Commanders. retain. their. current. authority. under. existing.Service.personnel.management.policies.to.assist.personnel.within. their.units.who.desire.to.separate.from.the.Service.when.in.the.best.interest. of.the.Service,.the.unit,.and/or.the.individual.in.question...Service.members. are.advised.to.talk.to.their.chain.of.command.and/or.seek.legal.assistance. to. ensure. they. understand. the. available. options. within. their. Service. for. pursuing.separation.for.any.reason...

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9. Will repeal of Don’t Ask, Don’t Tell have health implications for the military? No...DoD.research.found.that.there.would.be.no.increase.in.Service.member. health.risk...Existing.policies.and.procedures.for.HIV.screening.and.testing,. management. of. HIV-positive. personnel,. and. management. of. the. military. blood.supply.will.continue.to.be.effective.following.a.repeal.of.the.law...The. Service. Surgeons. General. have. examined. this. issue. and. determined. there. would.be.no.increased.risk. 10. Does the new policy apply equally to all Active, Reserve, and Guard components? Yes...DoD.regulations.generally.apply.equally.to.all.members.of.the.Active,. Reserve,.and.National.Guard.(when.in.Federal.status).components. Note:..Leaders.can.clarify.for.Reserve.and.National.Guard.personnel.which. policies.apply.in.a.non-duty.or.Title.32.status. 11. Are there any new restrictions on duty assignments or employment? No.. . There. will. be. no. special. treatment. or. special. arrangement. for. the. assignment. or. employment. of. gay. and. lesbian. Service. members.. . In. these. matters,.all.Service.members.will.be.considered.equally.regardless.of.sexual. orientation.... 12. Will the Department of Defense build separate living or bathroom facilities for gay and straight Service members? No.. . Building. separate. facilities. would. create. divisions. within. units. and. inappropriately.isolate.a.portion.of.the.force. 13. Does a Service member have the legal right to refuse to share accommodations and/or facilities with a gay and lesbian Service member? No....Service.members.do.not.have.a.legal.right.to.reject.(or.select).assignment. with.any.other.Service.member.within.shared.military.accommodations.and. facilities...In.addition,.Service.members.do.not.have.the.legal.right.to.refuse. work.or.duty.assignments.based.on.a.moral.objection.to.another.individual’s. sexual.orientation. If.a.Service.member.has.a.concern.with.a.billeting.or.work.arrangement.for. any. reason,. he. or. she. should. address. those. concerns. appropriately. within. their. chain. of. command.. . Commanders. may. use. discretion. in. personnel. assignments. to. berthing,. housing. and. other. facilities. to. maintain. morale,. . good. order,. and. discipline. based. on. Service. policies. and. space. available.. .

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Accommodation. requests. for. any. reason. are. considered. on. a. case-by-case. basis. Mission.readiness,.unit.effectiveness,.and.good.order.and.discipline,.remain. the.priority...Refusal.to.comply.with.lawful.orders.may.result.in.disciplinary. action. 14. Does repeal affect standards of conduct? No.. . Standards. for. personal. and. professional. conduct. apply. uniformly. without.regard.to.sexual.orientation.. Service. members. will. continue. to. conduct. themselves. consistent. with. Service.customs.and.traditions,.and.the.law...Service.members.are.expected. to.conduct.themselves.professionally.at.all.times. Unprofessional.behavior.by.any.Service.member.that.fails.to.meet.standards. of. conduct. should. be. corrected. by. explanation,. counseling,. administrative. action,.or.legal.action.depending.on.the.nature,.severity,.or.repetition.of.the. offense. Sexual.misconduct.of.any.kind.is.inconsistent.with.our.values.and.will.be. dealt.with.swiftly.and.severely...Harassment.or.violence.of.any.kind.between. Service.members.will.not.be.tolerated. 15. Is consensual sodomy still a punishable offense under the Uniform Code of Military Justice? Only.in.limited.circumstances...Unrelated.to.Don’t.Ask,.Don’t.Tell,.the.U.S.. Supreme.Court.and.the.Court.of.Appeals.for.the.Armed.Forces.found.that. private,.consensual.sexual.activity,.to.include.consensual.sodomy,.regardless. of.sexual.orientation,.is.a.protected.liberty.under.the.Fourteenth.Amendment.. . Consensual.sodomy.can.only.be.punished.if.it.is.prejudicial.to.good.order. and.discipline.or.service.discrediting.(e.g.,.in.public,.between.a.superior.and. a.subordinate),.or.there.are.other.factors.involved.in.the.commission.of.the. act.such.as.force,.coercion,.or.involvement.of.a.minor...This.was.true.before. repeal.and.it.remains.true.now. 16. How will the military handle discrimination towards gay and lesbian Service members? Unlawful.discrimination.against.any.individual.or.group.is.unacceptable. General.MEO.policy.requires.the.promotion.of.“an.environment.free.from. personal,. social,. or. institutional. barriers. that. prevent. Service. members. from.rising.to.the.highest.level.of.responsibility.possible”.and.prohibits.the.

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evaluation.of.Service.members.on.bases.other.than.“individual.merit,.fitness,. and.capability.”.. Complaints. regarding. harassment. or. discrimination. based. on. sexual. orientation. are. dealt. with. through. the. chain. of. command,. the. Inspector. General,.and.other.means.established.by.the.Services...Criminal.harassment. should.be.referred.to.appropriate.law.enforcement.agencies.for.investigation. 17. What training will be required for Service members and their families when repeal occurs? Service.members.will.be.informed.of.the.change.in.policy.and.expectations. for. behavior.. . Members. involved. in. certain. functions. (e.g.,. administrative,. legal,. investigative). may. receive. additional. training. focused. on. specific. changes.to.their.specialty...Family.members.will.be.informed.of.the.changed. policy.and.advised.where.to.go.to.seek.any.specific.information.they.need. Further.guidance.is.available.from.the.chain.of.command,.the.appropriate. Service.policy.staff,.lawyers,.chaplains,.and.medical.personnel..

Vignettes
The.following.training.vignettes.consist.of.hypothetical,.policy-related.teaching. scenarios. that. commanders. and. leaders. can. use. to. assist. them. in. implementing. the. change.in.policy...They.are.not.meant.to.provide.all.the.“correct”.outcomes,.but.serve. to. illustrate. approaches. to. a. sample. of. issues. that. may. arise. should. 10. U.S.C.. §. 654. be.repealed...The.vignettes.will.assist.leaders.in.addressing.potential.issues.related.to. repeal.in.order.to:. . Reinforce.expectations.of.exemplary.conduct.and.professionalism.from.all.Service. members. . Achieve.minimum.disruption.though.practical.examples. . Provide.commanders.with.common.examples.of.personal.and.professional.behavior.

As. a. general. guide,. Service. members. should. attempt. to. resolve. issues. at. the. lowest. level. of. the. chain. of. command. appropriate. for. the. situation.. . Leaders. should. mentor.Service.members.in.means.of.resolving.individual.disagreements.and.conflict.by. instilling.in.their.subordinates.a.willingness.to.properly.confront.and,.where.required,. correct.improper.behavior... The.best.way.to.work.through.most.conflict.is.to.clarify.the.situation.and.seek. understanding.with.the.other.person...Most.of.the.time,.talking.with.a.teammate.will. clear.up.the.misunderstanding...If.an.informal.meeting.does.not.address.the.concern,.

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have.a.formal.meeting.that.includes,.for.example,.a.senior.mentor,.outside.observer,.or. chaplain...Try.to.be.developmental,.not.punitive...If.these.meetings.do.not.resolve.the. issue,.then.bring.in.the.chain.of.command...Hold.people.accountable.when.they.misuse. their.authority.for.any.reason...If.the.chain.of.command.cannot.resolve.the.issue,.then. the.IG.and.other.grievance.processes.are.available.and.appropriate.to.use.when.other. options.are.exhausted. 1. SITUATION: You are the Senior Non-Commissioned Officer at a high tempo recruiting office. Your top notch, high performing recruiter who has served in the military for 14 years asks to meet with you. Due to his personal religious beliefs, he tells you he cannot process an outstanding applicant who voluntarily states he is gay. Issue:..Accessions.and.Recruiting.Policy...What.actions.should.the.SNCOIC. do?..Has.the.Service.member.committed.misconduct? Discussion:...Normally,.counseling.and.education.should.be.your.first.course. of.action...As.his.supervisor,.you.counsel.him.on.the.new.policy,.informing. him.that.sexual.orientation.is.not.a.bar.to.military.service,.and.his.duty.is. to.recruit.the.best.qualified.applicants.within.the.enlistment.standards.set. by.the.Service...Due.to.the.Service.member’s.stated.religious.concern,.you. may.suggest.the.Service.member.meet.with.the.chaplain.or.another.spiritual. advisor....If,.the.recruiter.continues.to.refuse.to.process.an.otherwise.qualified. recruit,.he.could.be.subject.to.disciplinary.or.adverse.administrative.action.. . However,. if. the. recruiter’s. performance. and. professionalism. is. otherwise. high,. and. he. is. able. to. carry. out. assigned. duties,. but. still. cannot. resolve. the. conflict. with. his. personal. beliefs,. the. SNCOIC. could. work. with. the. chain. of. command. to. explore. their. available. options. to. include. possible. reassignment.. In. all. situations,. leaders. are. expected. to. enforce. standards. and. correct. behaviors. that. undermine. unit. cohesion.. . Positive. leadership. with.a.focus.on.professional.obligations.to.uphold.the.policy.while.recruiting. the. best. qualified. applicants. should. be. reinforced.. . Service. members. are. expected.to.obey.lawful.orders.and.could.be.subject.to.discipline.or.adverse. administrative.action.if.they.refuse.orders,.even.if.such.refusal.is.based.on. strong,.sincerely.held,.moral.or.religious.beliefs... 2. SITUATION: You are the Senior Non-Commissioned Officer at a high tempo recruiting office. Your top notch, high performing recruiter from Situation 1 has been doing a good job for the past couple of months after your discussion with him about Don’t Ask, Don’t Tell. He requested a reassignment but it was denied. The recruiter asks to see you and informs you that while he appreciates how the situation was handled, he has tried but he cannot resolve his personal beliefs with the repeal of Don’t Ask, Don’t Tell. He has two years remaining on his current enlistment and wants to know how he can request an early separation.

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Issue:...Release.from.Service.Commitments....What.actions.should.the.SNCOIC. do?..Can.the.recruiter.be.released.early.from.his.service.commitment? Discussion:..The.Department.of.Defense.does.not.permit.the.early.discharge. of.Service.members.based.upon.their.opposition.to.a.new.policy..This.includes. a.repeal.of.Don’t.Ask,.Don’t.Tell....Service.members.with.a.service.commitment. may.request.early,.voluntary.discharge.under.the.plenary.authority.of.their. Military.Department.Secretary...Granting.these.types.of.requests.is.at.the. discretion.of.the.Military.Department.Secretary.and.is.granted.only.when. the.early.separation.would.be.in.the.best.interest.of.the.Service...Your.best. option.would.be.to.keep.your.chain.of.command.informed.of.the.situation. and.contact.the.legal.office.for.advice.on.pursuing.early.separation.within. existing.Service.policy. 3. SITUATION: An applicant comes into a recruiting station and says that he would like to enlist. In accordance with DoD policy, the recruiter does not ask any questions about the applicant’s sexual orientation; however, the applicant reveals of his own accord that he is gay. Issues:..Accessions.and.Recruiting.Policy;.Collection.and.Retention.of.Sexual. Orientation.Data...What.should.the.recruiter.do.after.hearing.the.applicant’s. statement? Discussion:..Applicants.will.not.be.asked.or.required.to.reveal.their.sexual. orientation. during. the. accession. process.. If. an. applicant. comes. into. a. recruiting.office.and.volunteers.a.statement.that.he.or.she.is.gay.or.lesbian,.the. recruiter.should.explain.to.the.applicant.that.sexual.orientation.is.considered. a.personal.and.private.matter.and.no.Service.member.is.required.to.declare. their. sexual. orientation.. . The. recruiter. should. continue. to. administer. the. application. unless. the. applicant. is. otherwise. ineligible. for. service. in. the. military.. 4. SITUATION: A junior officer complains to her immediate supervisor that she believes that the reason for her non-selection to a much-desired school was due to her sexual orientation. The supervisor informs the member that the panel used for the selection process had no way of knowing her orientation, but he would check into the situation and get back to her. After an informal inquiry of the panel members, the supervisor concludes that the selection process used was fair and equitable. The member is still not satisfied and wants to know what other course of action she can take. You refer her to the Commander who understands the Service member has a right to redress suspected wrongs in the selection process, but is unsure if this is a matter for the Equal Opportunity Advisor, the IG, or the chain of command.

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Issue:..Equal.opportunity...The.commander.wonders.if.this.is.an.issue.under. the.Military.Equal.Opportunity.Program,.the.IG,.or.something.the.chain.of. command.should.be.made.aware.of.to.determine.if.the.selection.board.acted. appropriately... Discussion:..Service.members.should.be.evaluated.only.on.individual.merit.. . The.supervisor’s.attempt.to.resolve.the.complaint.through.informal.inquiry. did.not.satisfy.the.Service.member’s.concerns...The.Service.member.should. attempt.to.continue.to.resolve.the.complaint.within.the.chain.of.command,. if.possible...If.the.complaint.is.not.resolved.within.the.chain.of.command. the. Service. member.can.seek. resolution. through. the. Inspector. General. or. other.means.established.by.the.Services...In.this.case,.the.MEO.program.is. not.appropriate.for.resolution.because.sexual.orientation.is.not.specified.as.a. class.eligible.for.the.MEO.complaint.resolution.process. 5. SITUATION: A Service member requests emergency leave after receiving a Red Cross message concerning the critical condition of his same-sex partner. Issue:..Benefits...Is.the.Service.member.eligible.for.Emergency.Leave?.. Discussion:...Yes...If.the.situation.places.a.severe.or.unusual.hardship.on. the.Service.member,.he.or.she.is.eligible.for.Emergency.Leave...The.sexual. orientation.of.the.Service.member’s.partner.has.no.bearing.on.the.decision.. . DoDI.1327.06.states.that.emergency.leave.may.be.appropriate.when: . A.member.of.the.household.or.immediate.family.has.died. . The. Service. member’s. presence. would. contribute. to. the. welfare. of. a. dying. member.of.the.household.or.immediate.family. . Serious.illness.of.a.member.of.the.household.or.immediate.family.imposes.a. demand.on.the.Service.member.that.must.be.met.immediately.and.cannot.be. accomplished.from.the.duty.station.or.by.any.other.means. . The. Service. member’s. failure. to. return. home. places. a. severe. or. unusual. hardship.on.the.Service.member,.his.or.her.household.or.immediate.family.

Commanders.may.grant.up.to.30.days.of.emergency.leave...In.this.situation,. the. leave. may. or. may. not. qualify. as. emergency. leave. depending. on. the. circumstances.. . The. Commander. should. meet. with. the. Service. member. to. obtain. information. about. the. emergency. and. verify. that. the. Service. member’s. presence. can. resolve. or. alleviate. the. situation.. . If. in. doubt,. the. Commander.should.seek.legal.advice.and.consult.the.chain.of.command...If.

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circumstances.and.the.military.mission.warrant.granting.emergency.leave,. the.Commander.should.ensure.swift.processing.of.the.request....If.the.situation. does.not.fall.within.the.guidelines.of.emergency.leave.and.the.mission.will. not.be.unacceptably.impacted,.every.attempt.should.be.made.to.resolve.the. situation.swiftly.and.compassionately.through.other.authorized.alternatives.. . Considerate,.professional.understanding.is.the.humane.approach.to.granting. leave.requests,.regardless.of.the.situation.or.circumstances... 6. SITUATION: You are the leading Chief Petty Officer aboard ship. A top performing Petty Officer, who is known to be a lesbian, approaches you and states she can no longer tolerate her roommate. Through positive reinforcement, counseling, and mentorship, you attempt to resolve the issue at the lowest level in the chain of command. However, you notice her performance starting to diminish and she and her roommate are making derogatory comments to co-workers about each other. The behavior has become disruptive to the entire unit and others are starting to complain. She puts in a request to be re-assigned to another berthing area onboard ship. Issue:..Privacy.and.Cohabitation...What.options.does.the.leading.Chief.Petty. Officer.have.to.address.conflicts.between.roommates?...What.actions.should. the.chain.of.command.take.to.address.this.issue?. Discussion:. . The. Chief. Petty. Officer. must. take. a. very. active. and. positive. leadership. approach. with. a. focus. on. conflict. resolution. and. professional. obligations. to. uphold. the. policy.. . The. Chief. Petty. Officer. should. counsel. the.individuals.and.help.them.to.resolve.their.personal.differences...A.clear. message.must.be.received.by.both,.that.respecting.each.other’s.rights.within.a. closed.space.is.critical.to.maintaining.good.order.and.discipline....Standards. of.conduct.apply.equally.to.all.Service.members.and.inappropriate.conduct. by.either.roommate.should.be.corrected.appropriately...If.the.issue.cannot. be. resolved. and. alternative. berthing. arrangements. can. be. made. within. command. policy. and. without. degrading. good. order. and. discipline. of. the. unit,.the.Commander.may.consider.reassignment.of.roommates.. 7. SITUATION: You are the admin chief of a unit personnel office. A newly commissioned Lieutenant reports to the unit with the expectation of starting his BAH at the “with dependent” rate. He informs you that he got married while executing PCS orders. He presents his marriage certificate. While reviewing the documents, you notice the Service member was married to his same-sex partner in Vermont where same-sex marriage is legal. The newly-reported member informs you he thought he would receive BAH at the “with dependent” rate once Don’t Ask, Don’t Tell was rescinded.

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Issue:..Benefits...What.entitlements.are.available.to.same-sex.partners?. Discussion:..Because.the.Federal.government.does.not.recognize.same-sex. marriages,. a. Service. member. cannot. claim. dependency. for. a. same-sex. partner,.for.BAH.purposes..You.inform.the.Lieutenant.that.he’s.not.entitled. to. BAH. at. the. “with. dependent”. rate. based. on. a. marriage. to. a. same-sex. partner...However,.if.the.Service.member.has.a.qualifying.dependent.such.as. a.dependent.child,.then.he.is.eligible.for.BAH.at.the.“with.dependent”.rate.. . The.question.of.benefits.for.unmarried.partners.is.being.studied.by.the.DoD. at. this. time.. . For. further. explanation. of. the. law. and. current. entitlements. available.to.the.Service.member.and.his.family,.refer.the.Lieutenant.to.the. Legal.Office.or.Family.Support.Center.. 8. SITUATION: You are the supervisor of a Service member who wants to file a complaint against a chaplain. The Service member informs you that she attended a worship service at the base chapel over the weekend and the chaplain’s sermon included several direct statements that homosexuality is a sin and that marriage should be only between a man and woman. The Service member disagreed with the chaplain’s remarks and felt they were discriminatory and biased and should not be allowed. Issue:. . Moral. and. Religious. Concerns.. . Can. the. Service. member. file. a. complaint. of. discrimination. or. harassment. against. the. chaplain?. . Should. chaplains. revise. their. sermons. to. avoid. the. perception. of. discrimination?. . What.alternatives.are.available.to.assist.the.member.or.the.chaplain? Discussion:.Chaplains.have.the.right.to.express.their.religious.beliefs.during. their.conduct.of.a.service.of.worship.or.religious.study...Unless.a.chaplain’s. speech.is.otherwise.prohibited,.such.as.publically.maligning.senior.leaders,. their. sermons. and/or. teachings. cannot. be. restricted,. even. with. regard. to. socially. controversial. topics.. . This. situation. is. an. excellent. opportunity. to. have.a.discussion.with.the.Service.member.about.religious.respect.and.the. proper.boundaries.of.religious.expression.within.the.military...You.could.offer. to.meet.with.the.Service.member.and.the.chaplain.to.facilitate.a.discussion. on.the.topic...If.either.the.chaplain.or.the.Service.member.feels.that.due.to. their.religious.views,.speech,.or.practice,.they.have.been.improperly.treated,. redress.is.available.through.their.chain.of.command,.existing.Service.policy,. or.the.IG.if.necessary...Chaplains.facilitate.the.free.exercise.of.religion.for. all.personnel,.regardless.of.the.religious.affiliation.of.either.the.chaplain.or. the.individual...At.the.same.time,.regulations.also.recognize.that.chaplains. minister. to. members. in. accordance. with,. and. without. compromising,. the. tenets.of.their.faith...These.boundaries.are.not.always.clearly.defined...Finally,. the. Service. member. may. request. assistance. from. the. chaplain’s. office. in. finding.a.different.religious.service.to.attend...

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9. SITUATION: You are a Senior NCO. After a company run, you witness two of your fellow Service members in the locker room joking and having a loud inappropriate conversation about gays and lesbians. The comments were directly related to their refusal to be naked and shower in front of a gay Service member. Issues:..Standards.of.Conduct;.Privacy...How.do.you.address.this.situation?. . Is.there.a.violation.of.the.Standards.of.Conduct?.. Discussion:. . Leaders. at. all. levels. are. responsible. for. maintaining. trust,. cohesion,.effectiveness,.and.readiness.of.the.all-volunteer.force...Leaders.are. expected. to. dispassionately. enforce. standards. and. correct. behaviors. that. undermine.unit.cohesion..You.should.advise.them.of.the.Service.policy.and. inform.them.that.discrimination.or.harassment.against.any.Service.member. is.inappropriate....If.a.request.is.made.to.avoid.showering.with.an.individual,. Commanders. have. the. discretion. to. grant. personal. requests. within. unit. policies.and.if.the.mission.is.not.unacceptably.impacted...As.a.general.rule,. the. person. making. the. request. would. have. the. burden. of. adapting. to. a. different.schedule...However,.publicly.joking.about.this.issue.is.inappropriate. behavior. 10. SITUATION: You are a civilian working in the housing office. A Service member, who is known to be a lesbian, recently adopted a son and reports to your office to discuss her Military Family Housing application. She requests to be assigned specific quarters that are more isolated than others, for concerns of potential harassment of her family. She also requests that her same-sex partner, who is her son’s primary care provider, occupy the quarters as well. Issues:..Benefits;.Standards.of.Conduct...Are.there.guidelines.for.same-sex. partners.occupying.Military.Family.Housing?..How.should.the.housing.office. consider.the.request.for.specific.quarters? Discussion:..You.should.inform.the.Service.member.that.because.she.has. a. qualifying. dependent. son. that. she. is. indeed. authorized. Military. Family. Housing.. . Local. policies. regarding. live-in. child. care. providers. or. other. non-dependents.living.in.base.housing.should.be.followed.for.the.same-sex. partner.. . You. explain. to. her. that. in. accordance. with. the. Military. Family. Housing.assignment.policy,.she.will.be.given.several.options.pertaining.to. assignment.of.quarters,.but.her.special.request.to.be.assigned.isolated.quarters. may.not.necessarily.fall.within.the.guidelines.of.“special.considerations.”...If. quarters. are. found. inadequate. for. her. needs,. she. has. the. option. to. obtain. outside.housing.or.discuss.the.issue.with.her.chain.of.command...Since.the. Service. member. also. expressed. a. concern. about. harassment,. it. would. be. appropriate.to.refer.her.to.her.chain.of.command.to.discuss.these.concerns.. . Harassment.for.any.reason.is.not.tolerated.within.the.Department.of.Defense. and.should.be.appropriately.reported.and.corrected.at.all.times..

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11. SITUATION: You are the Executive Officer of your unit. While shopping at the local mall over the weekend, you observe two junior male Service members assigned to your unit and in civilian clothes kissing and hugging in the food court. Issue:. . Standards. of. Conduct.. Is. this. within. standards. of. personal. and. professional.conduct?.... Discussion:. . Standards. of. conduct. regarding. public. displays. of. affection. (PDA).are.orientation-neutral...If.the.observed.behavior.crosses.acceptable. boundaries.as.defined.in.applicable.standards.of.conduct.for.your.unit.and. Service,.then.an.appropriate.correction.should.be.made...Your.assessment. should.be.made.without.regard.to.sexual.orientation. 12. SITUATION: A Service member has been observed entering, leaving, and generally “hanging around” a gay bar. The Commander is notified of the observations but isn’t sure what action, if any, she should take. Issue:..Standards. of.Conduct..What.should. the.Commander. do?..Can.the. Commander.take.administrative.disciplinary.action.and.charge.the.Service. member.for.going.to.a.gay.bar?..Should.she.conduct.a.Commander’s.inquiry? Discussion:..Installation.Commanders.can.place.an.establishment.off-limits. for. certain. reasons,. such. as. known. or. suspected. criminal. activity. or. drug. use...An.establishment.would.not.be.placed.off-limits.just.for.catering.to.gay. clientele...Unless.the.establishment.is.designated.off-limits.by.the.installation. Commander. or. there. is. evidence. of. behavior. by. the. Service. member. that. is. counter. to. Service. and/or. Command. standards. of. conduct,. there. is. no. prohibition.against.going.to.a.gay.bar...In.this.case,.the.Commander.should. take.no.action. 13. SITUATION: A Warrant Officer is watching the local TV news coverage of a gay rights parade when he notices a female Service member assigned to his unit marching in the parade in civilian clothes, carrying a handmade placard. As the television camera zooms in on the Service member’s sign, the Warrant Officer can clearly read the handwritten words “Support Gays and Lesbians in the military!” The next morning, he reports the incident to his Commander. Issue:. Standards. of. Conduct.. Is. this. prohibited. activity?. . Should. the. Commander.inquire.into.what.meaning.this.Service.member.had.intended. to.convey.by.carrying.that.particular.sign.in.the.gay.rights.parade? Discussion:.A.Service.member’s.participation.and.carrying.a.banner.or.sign. in.a.gay.rights.activity.would.not.in.and.of.itself.constitute.misconduct.unless. the. Service. member’s. actions. are. otherwise. prohibited. or. would. discredit. the.military...For.example,.participating.in.uniform.or.while.on.duty.hours.

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would. be. prohibited. unless. approved. by. authorized. command. authorities.. . In.this.case,.the.Service.member.chose.to.carry.a.sign.that.acknowledged. positive.support.for.gay.and.lesbian.Service.members.serving.in.the.military.. . The.parade.was.a.local.community-sanctioned.event.and.was.not.a.protest. or.dissident.activity.prohibited.by.existing.policy....Furthermore,.the.Service. member.was.off-duty.and.in.civilian.clothes...Participation.in.the.parade.as. described.is.within.the.Service.member’s.right.of.expression.and.consistent. with. good. order. and. discipline.. . However,. if. there. is. any. doubt. about. participating.in.any.off-base.event,.the.Commander.should.contact.the.JAG. for.advice. 14. SITUATION: You are the Command Master Chief of a base. A Service member with 16 years of service requests to see you about her next assignment. Due to a medical concern of her same-sex partner, she would like to request a base where she has access to the medical care she requires. She states that if she cannot get the care, she intends to turn down her next assignment. She wants to know if she can receive any assignment priority based on the needs of her partner. Issue:..Duty.Assignments...What.actions.should.the.Command.Master.Chief. take?. . Can. the. Assignment. Officer. take. into. consideration. the. member’s. honest. acknowledgement. concerning. her. partner. and. assign. her. to. the. desired. location?. . Can. the. member. decline. assignment. orders. without. consequences?. Discussion:. Service. members. are. assigned. permanent. change. of. station. orders. based. on. the. needs. of. the. Service.. . Service. members. can. share. personal. information. with. assignment. personnel. for. consideration. in. making.assignments...Assignment.personnel.then.make.assignments.within. existing. Service. assignment. policy.. . In. general,. a. Service. member’s. sexual. orientation.should.have.no.bearing.on.the.assignments.process...In.this.case,. the.same-sex.partner.would.not.qualify.the.Service.member.for.assignment. priority. under. existing. DoD. policy.. . However,. the. Service. member. can. provide.any.information.that.she.is.comfortable.sharing.for.consideration.. . The. Service. member. could. also. share. her. concerns. with. the. Commander. who.could.make.an.input.to.the.assignment.process.within.existing.Service. regulations.. . If. the. assignment. can. be. made. within. existing. assignment. policy.and.the.needs.of.the.Service,.then.this.request.could.be.considered.. . The. Service. member. may. turn. down. the. assignment. and. separate. if. she. does.not.have.an.existing.service.commitment.that.would.prevent.her.from. separating...If.the.Service.member.has.further.questions.about.assignment. priority.based.on.her.situation,.she.should.be.referred.to.the.legal.office...

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A PPEN D I X

E

RECOMMENDED FOLLOW-ON REVIEW STRATEGIES

The.Terms.of.Reference.from.the.Secretary.of.Defense.direct.that.the.Working.Group. “assure. appropriate. ways. to. monitor. the. workforce. climate. and. military. effectiveness. that. support. successful. follow-through. on. implementation.”. . This. appendix. identifies. methods.that.may.be.used.to.accomplish.that.task.should.repeal.of.10.U.S.C..§.654.occur.. . Monitoring. methodologies. are. currently. available. through. a. variety. of. resources. and. tools.that.DoD.entities.already.use...The.Working.Group.reviewed.these.existing.DoD. surveys.and.assessments;.a.brief.summary.of.those.instruments.is.provided.here...As. much.as.possible,.follow-on.review.and.monitoring.should.use.existing.processes.and. minimize. disruption. to. the. force. that. might. result. from. establishing. new,. potentially. burdensome.reporting.instruments. There.is.no.single,.unified.instrument.for.collecting.and.assessing.organizational. data.within.the.Department.of.Defense...At.present,.the.Department.of.Defense.uses.a. variety.of.interrelated.resources;.several.entities.conduct.analyses.that.could.be.adapted. to.collect.data.on,.and.monitor.the.success.of,.implementation.of.repeal...These.entities. and.instruments.include: . Defense. Manpower. Data. Center. (DMDC). –. “Status. of. Forces”. Surveys.. . Periodic,. fast,.accurate.assessments.of.attitudes.and.opinions.of.the.entire.DoD.community.. . Capable.of.developing.additional.evaluations.targeting.specific.interests. . Defense.Equal.Opportunity.Management.Institute.(DEOMI).–.“Command.Climate”. surveys.. . Allows. leaders. to. proactively. assess. critical. organizational. climate. dimensions.that.can.impact.their.organization. . Inspector. General. –. “Command. Assessments.”. . Inspections. of. commands. and. leadership.to.ensure.proper.application.and.enforcement.of.policies. . Sexual.Assault.Prevention.and.Response.Office.(SAPRO)...Single.point.of.contact.for. accountability.and.oversight.of.sexual.assault.policy,.facilitates.resolution.of.issues. common. to. all. Military. Services. and. joint. commands,. submits. annual. report. on. sexual.harassment,.assault,.and.violence.to.the.Department.of.Defense.

The.Working.Group.recommends. that.OUSD(P&R). work. with.established. DoD. entities.that.specialize.in.surveys.and.assessment,.and.leverage.their.resources.to.conduct. follow-on.review.and.monitoring.of.implementation.of.repeal.of.10.U.S.C..§.654...The. list. below. highlights. reporting. instruments. routinely. used. across. the. Department. of. Defense.that.could.be.adapted.for.follow-on.review.purposes:..

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 . “Status.of.the.Forces”.Surveys.–.Defense.Manpower.Data.Center.(DMDC) . Provide. the. Department. of. Defense. with. fast,. accurate. assessments. of. attitudes.and.opinions.of.the.entire.DoD.community.to:..1).evaluate.existing. programs/policies,.2).establish.baseline.measures.before.implementing.new. programs/policies. and,. 3). monitor. progress. of. programs/policies. and. their. effects.on.the.total.force.. . Command. Climate. Surveys. –. Defense. Equal. Opportunity. Management. Institute. (DEOMDoDD.1350.2:..DoD Military Equal Opportunity (MEO) Program Assessments) . DoDD.1350.2:..DoD Military Equal Opportunity (MEO) Program Assessments . DEOMI. Organizational. Climate. Survey. (DEOCS):. . The. questionnaire. uses. shared. perceptions. of. an. organization’s. members. to. measure. climate. factors.associated.with.military.equal.opportunity.(MEO).and.civilian.equal. employment.opportunity.(EEO).issues,.as.well.as.organizational.effectiveness. (OE). factors.. . This. survey. allows. leaders. to. proactively. assess. critical. organizational.climate.dimensions.that.can.impact.their.organization...There. are.13.Climate.Factors: 1.. Sexual.Harassment.and.Sex.Discrimination 2.. Differential.Command.Behavior.Toward.Minorities 3.. Positive.Equal.Opportunity.Behaviors 4.. Racist.Behaviors 5.. Religious.Discrimination 6.. Age.Discrimination 7.. Disability.Discrimination 8.. Organizational.Commitment 9.. Trust.in.the.Organization 10.. Work.Group.Effectiveness 11.. Work.Group.Cohesion 12.. Leadership.Cohesion 13.. Job.Satisfaction . Commanders. can. add. up. to. 10. locally-developed. questions. and. five. shortanswer.questions.to.their.survey,.helping.them.target.specific.areas.of.concern.

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 . Command.Assessments.–.Inspector.General . Service. Inspectors. General. could. include,. as. an. item. of. specific. interest. in. their. inspection,. the. training. of. those. charged. with. application. and. enforcement.of.the.policies.related.to.repeal,.and.implementation.of.sexual. orientation-neutral.policies. . Sexual.Assault.Prevention.and.Response.(SAPR)/Drug.and.Alcohol.Program.Advisor. (DAPA)/Sexual.Harassment. . The. Sexual. Assault. Prevention. and. Response. Office. (SAPRO). serves. as. the. single.point.of.accountability.and.oversight.for.sexual.assault.policy,.provides. guidance. to. the. DoD. components,. and. facilitates. the. resolution. of. issues. common.to.all.Military.Services.and.joint.commands...The.objectives.of.DoD’s. Sexual. Assault. Prevention. and. Response. policy. are. to. specifically. enhance. and. improve:. 1). prevention. through. training. and. education. programs,. 2). treatment.and.support.of.victims,.and.3).system.accountability. . DoD. Annual. Report:. . The. Department. of. Defense. is. required. to. submit. to. Congress.an.annual.report.on.sexual.assault.in.the.military...The.report.is. divided. into. the. following. major. sections:. . DoD. SAPR. Program. Overview,. Program. Highlights,. Aggregate. Report. of. Sexual. Assault. Incidents,. Way. Ahead.for.Program,.and.Strategic.Observations. Annual Report on Sexual Harassment and Violence at the U.S. Military Service Academies:. . The. annual. reports. on. sexual. harassment. and. violence. at. the. three.Service.academies.provide.data.on.reported.sexual.assaults.involving. cadets. and/or. midshipmen,. as. well. as. policies,. procedures,. and. processes. implemented. in. response. to. sexual. harassment. and. violence. during. the. Academic.Program.Year. . DoDI.6495.02:..SAPR Program Procedures. . DoDD.6495.01:..Sexual Assault Prevention and Response (SAPR) Program.

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Support Plan for Implementation Report of the Comprehensive Review of the Issues Associated with a Repeal of “Don’t Ask, Don’t Tell”
Staff Leadership
C apt a i n A n ne G. H a m mond, U. S . Nav y, D eput y Ch ief of St a f f M r. D ou g Mc C oy, A s si s t a nt Ch ief of St a f f

Writing Team
D r. G er a ld F. G o o dw i n, L e ad Wr it er C olonel G a r y A .Pack a r d, Jr., Ph D, U. S . A i r For c e L ie ut e n a nt C olonel Jen ny C a r u s o, U. S . A r my M ajor L i nel l A . L etend r e, U. S . A i r For c e M r. Ja me s A . C a doga n M r. Jon at h a n L . L e e D r. Rob er t P. Tr o s t

Editors
M r. B enja m i n B r y a nt, L e a d E d itor M r. Thom a s J. Z a mb e rl a n, Te ch n ic a l E d itor

Layout and Design
Mr. Nicholas Doyle, Lead Designer Ms. Kathleen Jones Mr. Kelly Guerrero Mr. Floyd Stewart

Support Plan for Implementation

Report of the Comprehensive Review of the Issues Associated with a Repeal of “Don’t Ask, Don’t Tell” November 30, 2010